LE 3 T499 A3 REPORT B 416310 THE oyal Commission ON THE University of Toronto PRINTED BY ORDER OF THE LEGISLATIVE ASSEMBLY OF ONTARIO TORONTO: Printed and Published by L. K. CAMERON, Printer to the King's Most Excellent Majesty. 1906. GENERAL LIBRARY NIVERSITY OF MICHIG PATES SCIENTIAVERIT 1011 REPORT 2/6 OF THE Royal Commission ON THE University of Toronto . MICE UNIV PRINTED BY ORDER OF THE LEGISLATIVE ASSEMBLY OF ONTARIO TORONTO: Printed and Published by L. K. CAMERON, Printer to the King's Most Excellent Majesty. 1906. LE 3 T499 A3 NO3 002 ON 3 WARWICK BRO'S & RUTTER, LIMITED, PRINTERS TORONTO. 1906 111 UNIVERSITY OF TORONTO. 70-91-44 WM. MORTIMER CLARK. Province of Ontario. J. J. Fox, Attorney-General. EDWARD THE SEVENTH, by the Grace of God, of the United King- dom of Great Britain and Ireland and of the British Dominions beyond the Seas, King, Defender of the Faith, Emperor of India. TO Goldwin Smith, Esquire, Doctor of Civil Law, Sir William Ralph Meredith, Knight, Joseph W. Flavelle, Esquire, Byron E. Walker, Esquire, Doctor of Laws, Arthur Hugh Urquhart Colquhoun, Esquire, Bachelor of Arts, the Reverend Henry J. Cody, Master of Arts, and the Reverend D. Bruce Macdonald, Master of Arts, all of the City of Toronto in the County of York. OUR COMMISSIONERS IN THIS BEHALF. GREETING. WHEREAS in and by Chapter Nineteen of the Revised Statutes of Our Province of Ontario entitled "An Act respecting Inquiries conc ncerning Pub- lic Matters," it is enacted that whenever the Lieutenant-Governor of Our said Province in Council deems it expedient to cause inquiry to be made into and concerning any matter connected with the good government of Our said Province or the conduct of any part of the public business thereof or the administration of Justice therein, and such inquiry is not regulated by any special law, the Lieutenant-Governor may by the Commission in the case con- fer upon the Commissioners or persons by whom such inquiry is to be con- ducted, the power of summoning before them'any party or witnesses and of requiring them to give evidence on oath orally or in writing (or on solemn affirmation if they be parties entitled to affirm in civil matters) and to pro- duce such documents and things as such Commissioners deem requisite to the full investigation of the matters into which they are appointed to exam- ine, and that the Commissioners shall then have the same power to enforce the attendance of such witnesses and to compel them to give evidence and produce documents and things as is vested in any Court in Civil Cases. AND WHEREAS the Lieutenant-Governor of Our said Province of Ontario in Council deems it expedient that inquiry should be made into the matters hereinafter referred to. Now KNOW YE THAT WE having and reposing full trust and confidence in you, the said Goldwin Smith, William Ralph Meredith, Joseph W. , Flavelle, Byron E. Walker, Arthur Hugh Urquhart Colquhoun, Henry J. Cody and D. Bruce Macdonald, Do HEREBY, by and with the advice of our Executive Council of Our said Province, APPOINT you, the said Goldwin Smith, you the said William Ralph Meredith, you the said Joseph W. Fla- velle, you the said Byron E. Walker, you the said Arthur Hugh Urquhart Colquhoun, you the said Henry J. Cody, and you the said D. Bruce Mac- BBR iv No. 42 ROYAL COMMISSION RE Donald to be OUR COMMISSIONERS in this behalf to enquire into and report to Our said Lieutenant-Governor UPON : (a) A scheme for the management and government of the University of Toronto in the room and stead of the one under which the said Uni- versity is now managed and governed. (6) A scheme for the management and government of University Col- lege, including its relations to and connection with the said Uni- versity of Toronto. (c) The advisability of the incorporation of the School of Practical Science with the University of Toronto. (d) Such changes as in the opinion of the Commissioners should be brought about in the relations between the said University of Toronto and the several Colleges affiliated or federated therewith, having regard to the provisions of the Federation Act. (e) Such suggestions and recommendations in connection with or aris- ing out of any of the subjects thus indicated as in the opinion of the said Commissioners may be desirable. GIVING to you Our said Commissioners full power and authority to sum- mon before you any party or witnesses and to require him or them to give evidence on oath orally or in writing (or on solemn affirmation if such party or witnesses is or are entitled to affirm in civil matters) and to produce to you Our said Commissioners such documents and things as you may deem requisite to the full investigation of the premises TOGETHER with all and every other power and authority in the said Act mentioned and authorized to be by us conferred on any Commissioner appointed by authority or in pur- suance thereof. AND WE Do REQUIRE You, Our said Commissioners, forthwith after the conclusion of such inquiry to make full report to Our said Lieutenant-Gover- nor touching the said investigation together with all or any evidence taken by you concerning the same. To HAVE HOLD AND ENJOY the said office and authority of Commission- ers for and during the pleasure of Our said Lieutenant-Governor. AND WE Do HEREBY APPOINT the said Joseph W. Flavelle to be Chair- man, and Arthur Hugh Urquhart Colquhoun to be the Secretary of Our said Commission. IN TESTIMONY, whereof we have caused these Our Letters to be made Patent and the Great Seal of Our Province of Ontario to be hereunto affixed. WITNESS His Honour William Mortimer Clark, etc., etc., etc., LIEUT- ENANT-GOVERNOR OF OUR PROVINCE OF ONTARIO, AT OUR Gov- ERNMENT HOUSE in Our City of Toronto in Our said Province this third day of October in the year of Our Lord one thousand nine hundred and five and in the Fifth year of Our Reign. By Command, THOMAS MULVEY, Assistant Provincial Secretary. CONTENTS. PAGE. xvi Xxxvii Act of Federation, The Art Schools ... Appointment, Tenure of Agricultural College, The li xlii xxi Board of Governors, The Bureau of Self-Support for the Students... 1 xxviii xxvii Caput, The .... Chancellor and Convocation, The. College Residences.. College System, The .. xlix xlvii xviii Defects of the Present System Discipline .. 1 lvii Endowment of Land.... Existing Situation, The viii xxviii liii Faculty Councils... Financial Support of the University. Forestry, Instruction in. Future of the University .. XXXV lix ix Historical Retrospect Household Science.. Interchange of Lectures xxxvi xlviii xxxiv Law, The Faculty of.. Library, The Needs of the xxxix xli Metereorological Observatory. Medical Training for Women.. Medicine, The Faculty of.. Museum.. xxxiii xxxi xl Music .. xxxvii Outline of Suggested Reconstruction.. XX XXV 1i- President, The Office of ..... Pedagogy, A Department of . Professors, The Remuneration of Professors and Students Property and Buildings lii xlix lii Xxxviii Research in the University Residences, College xlix [v] vi ROYAL COMMISSION RE UNIVERSITY OF TORONTO. PAGE. xxiii lix XXX vii xliv Senate, The Scholarships School of Practical Science, The.. Scope of the Inquiry State Veterinary College, A Students, The : A Students Committee... ' Professors and Students .. Bureau of Self Support for Students .. Physical Welfare of Students 1 xlix ! 1 xlix lvii Trinity College.. University College Veterinary College, A State.. xxix xliv REPORT. To His Honour the Lieutenant-Governor. The Commissioners appointed by Your Honour to enquire into and report upon the system of administering the affairs of the University of Toronto and of University College have completed their labours and respectfully beg to report to Your Honour the result of the inquiries made, together with such recommendations as appear to be warranted after a thorough examin- ation into the conditions. By the terms of the Royal Commission, dated the 3rd day of October, 1905, we were authorized to inquire into and report upon : 1. A scheme for the management and government of the University of Toronto in the room and stead of the one under which the said Univer- sity is now managed and governed. 2. A scheme for the management and government of University Col- lege, including its relations to and connection with the said University of Toronto. 3. The advisability of the incorporation of the School of Practical Science with the University of Toronto. 4. Such changes as, in the opinion of the Commissioners, should be brought about in the relations between the said University of Toronto and the several colleges affiliated or federated therewith, having regard to the provisions of the Federation Act. 5. Such suggestions and recommendations in connection with or aris- ing out of any of the subjects thus indicated as in the opinion of the Com- missioners may be desirable. SCOPE OF THE INQUIRY. In order that the inquiry might be as full and comprehensive as pos- sible, it was decided to consult representatives of the various governing bodies of the University and University College, the heads of the federated universities and colleges and affiliated colleges, deans of faculties, and such other persons as might be deemed, by reason of experience or special know- ledge, to have information of value on the subject. It was further resolved to examine the conditions existing in some of the principal universities at home and abroad in order to compare the workings of their administrative systems with that in vogue in the University of Toronto. It was also deter- mined, in view of the strong interest exhibited by the graduates of the Uni- versity in its fortunes and welfare, to afford opportunity for the Alumni, [vii] viii No. 42 ROYAL COMMISSION RE either within or without the Province of Ontario, to present to the Commis- sion any suggestions and recommendations which their attachment to their Alma Mater might inspire them to make. We have held seventy-seven meet- ings and a great deal of valuable testimony, both oral and written, has been presented to the Commission. We have thought it well to prepare and submit, in addition to our report, a bill embodying in detail the suggested provisions of the scheme of government. It was with a strong sense of responsibility that we approached the task of devising a plan for the reorganization of an institution of the highest importance, at once to the intellectual life of the nation, and to its progress in the practical sciences needed to open to its youth the golden opportunities of an age of scientific achievement. We have done our best to equip our- selves for the work by visiting some of the leading universities of the con- tinent and studying their methods of administration. Dr. Schurman, the highly successful President of Cornell University, was so good as to come to Toronto for a conference with us, from which we reaped great benefit. We wish to thank him and the authorities of other universities for their courtesy in answering the questions of the Commission, and for the personal attention shown to its members. Those of our number who visited the Uni- versities of Wisconsin, Illinois, Chicago, Michigan, Cornell, Johns Hop- kins, Princeton, Columbia, Yale and Harvard greatly appreciated the court- esy and hospitality they received. With the constitution and administra- tion of the English universities one of our members was familiar. THE EXISTING SITUATION. The situation with which we were called upon to deal was complicated, both by the peculiar structure of the University, due to its origin and hist- ory, and by the fact that the advance of science and the extension of utili- tarian ideas have changed and broadened the scope of university training everywhere. In this new world, with great natural resources to develop, and with an ever-increasing variety of material industries to attract the ener- gies of young men, the objects of university education have been both mul- tiplied and modified. The modern university, still cherishing the love of learning and intent upon the pursuit of knowledge, must adapt its courses of study to every phase of human progress. It must set the standard of pub- lic education. It must minister, in ways hitherto deemed to lie beyond its domain, to the practical as well as to the intellectual and moral needs of the country. The University of Toronto, as we now find it, with its federated Arts Colleges and theological schools, its Faculties of Applied Science, Law and Medicine, and its affiliated colleges, is a striking example of the revolu- tion that separates the present from the past. Its re-organization twenty years ago occurred just when there had come over the academical world in general a re-consideration of previous aims and limitations. The English universities, which in their early days had been repertories of all the know- 1906 ix UNIVERSITY OF TORONTO. ledge then existing, though in a scholastic form, had in later times become finishing schools of culture for a wealthy class, and those destined for the clerical and other learned professions. The only subjects taught were those specially adapted to the purpose of culture, Classics and Mathematics, with the addition, at Oxford, of Moral Philosophy and Logic. Both Oxford and Cambridge, moreover were almost entirely in the hands of the clergy. Professors of Natural Science there were; but their subjects had fallen into abeyance and their lecture rooms were empty. The universities of the new world had, in the main, been formed after the pattern of those in the Old Country. But now came the age of science and of demand for an education which should not only cultivate the mind but fit for the practical occupa- tions, and help to the prizes of life. Even Oxford and Cambridge, now re- organized, declericised, and relieved of tests by Parliament, have enlarged their courses of instruction by the admission of more modern and more practical subjects—Law, History, Political Economy and Natural Science. But unlike the teaching of Classics or Mathematics, the teaching of practical science required a very costly equipment; and, in Ontario, owing to the imposition of religious tests in King's College, the establishment of several denominational colleges had unfortunately distributed the resources of the Province in university education. There came into being more universi- ties than the Province could support. When, therefore, the time to provide expensive science training arrived, re-concentration of resources and the appeal of a strong Provincial University to the liberality of the people became necessary. Denominational universities could not fail to perceive that it was only on a very narrow basis that they could henceforth hope to subsist on their own resources. But in the industrial and commercial com- munities of this hemisphere, the demand for the full recognition of practi- cal science and its admission to the university curriculum was naturally more pronounced and pressing than in England. A great Canadian engineer was bewailing the opportunities which, for want of education in his line, were being missed by Canadian youth. Just across the line, Cornell was being carried rapidly to the front by the excellence of its Practical Science Department. It was at this juncture that the University of Toronto was organized on its existing basis. In approaching the task of framing a new scheme of government to replace the old, we have been led to realise the duty which rests upon the people of the Province. The University of Toronto is a State institution. It is dependent upon public aid for its existence and development. The maintenance of its efficiency as the crown of the educational system is a matter of supreme interest and importance. During sixty-five years the institution, under the varying conditions that have affected its welfare and usefulness, has borne a large and honourable share in national education. In its class rooms some of the best intellects of the country have been trained. The zeal and learning of its teachers, during two generations, have left an indelible impression upon the ranks of professional men, upon those who have engaged in public affairs, and upon the chief ornaments of the X ROYAL COMMISSION RE No. 42 teaching body in our primary and secondary schools. It has also trained men of talent who have carried the renown of the University abroad and who now, to the honour of their Alma Mater and with credit to themselves, occupy places of the highest distinction in the educational world. Many of its pro- fessorial chairs are filled by its own graduates, whose literary and scientific achievements are part of the contribution which the institution has made to the national advancement. No university has better reason to be proud of its graduates and students, and if we speak plainly and fearlessly, , as it is our duty to do, of its imperfections of government, we desire to be understood as holding in esteem the fame the institution enjoys among the universities of this continent. The State aid bestowed upon it has yielded a manifold return to the Province and the nation. The University should con- tinue to be regarded as a trust handed on by its founders and the early set- tlers of the country to the present generation. The action of the Legisla- ture last session proves that the Province does not wish to abandon one of the noblest of its obligations or to cease to concern itself with the task of providing higher education for the people. A liberal policy in deal- ing with higher education is dictated by sound statesmanship and an intelligent outlook. The modern conception of university training imposes new and serious burdens, but these burdens are cheerfully assumed in every progressive country. It is felt that both intellectual and material advance- ment are intimately associated with the most thorough and complete instruc- tion, especially in a new and growing community. If we are to heed the lessons of the past, neglect of these necessary measures would certainly entail a lower standard of national efficiency. This view has happily pre- vailed in Ontario. While maintaining the University of Toronto as a seat of learning in accordance with the inherited traditions of the Old World, the Legislature has not been slow to adopt a wide interpretation of what constitutes university training in our day. An agricultural college, of high repute for the excellence of its work in applying the discoveries of science to the pursuits of husbandry, has been established. The public funds have also been drawn upon for the creation of the School of Practical Science, the success of which in respect to the number of students and the variety of technical training provided is an indication of popular support and approval. Both these institutions supplement the work of the University and establish its claim to minister to the educational requirements of all classes and interests. The labours of the Commission, therefore, have been directed not to the severing of the connection between the University and the State, with which it is inseparably associated to the welfare and honour of both, but to sub- mit such changes of administrative machinery as may tend to harmonize and unify its somewhat disjointed parts and lend new vitality to the whole system. A method has been sought by which the Province might adapt from the experience of other State institutions a plan suited to local condi- tions. But the inquiries have been pursued for the purpose of reconstruction rather than of destruction. We have been mindful of the fact that the 1906 xi UNIVERSITY OF TORONTO. a University of Toronto, although faulty in its scheme of government, has a his- tory and tradition peculiarly its own. In seeking to apply a remedy to an imperfect set of conditions, we have not forgotten that these conditions are not exactly reproduced anywhere else, that they have sprung from excep- tional causes incident to the educational situation of Ontario, and that an ideal scheme of university government, pleasing in theory, and apparently , fortified by examples at home and abroad, might easily prove unworkable here. Nor should it be overlooked that the future expansion of the University, not less than its present needs, is a consideration of vital moment. We have a right to assume that in the years to come the University of Toronto will more and more assert its influence in the national life of Canada; draw to its academic halls students from every part of the continent, and, as fountain of learning and a school of scientific research, worthily maintain the reputation of the past. To limit our vision to the possibilities of the immediate future would be a narrow policy. A scheme of government created to-day must keep in view the gradual but certain enlargement of half a century hence. а. HISTORICAL RETROSPECT. a Much of the complexity of the system of administration is due, as we have said, to the history of the University's origin and development and to arrive at a clear understanding of the present situation, it is necessary to recall some of the salient points of the record. The Provincial University is essen- tially the creation of the State. It found a place in the earliest programme of legislation evolved under settled government. Simcoe, the first Governor of Upper Canada, suggested in 1790 the establishment of “a college of a higher class.” At the close of his term of office, five years later, he advo- cated the setting apart for university purposes of a portion of the Crown domain. The Legislature of 1797 recommended the carrying out of this policy, and ultimately 295,705 acres of land were thus appropriated for the endowment and maintenance of the University. In those early days the carrying out of ambitious projects of education was beyond the resources of the country. To Dr. Strachan was due the actual realization of the plau so long advocated. The charter he secured for the University of King's Col- lege in 1827 provided for “the education of youth in the principles of Chris- tain religion” as well as "instruction in the various branches of science and literature.” But it contemplated a distinctively Church of England insti- tution. The Visitor was the Bishop of the Diocese. The President and fessors were to be members of the Anglican Church, although no religious test was to be required of the undergraduates or of the graduates, except of those in divinity. The opposition aroused by the terms of the charter delayed the opening of the college. The Legislature in 1837 passed amendments to the charter with a view to modifying its denominational character. The Judges of the King's Bench were made the Visitors, and the President and profes- sors were not required to be members of the Church of England. A college pro- xii No. 42 ROYAL COMMISSION RE а a council of twelve members with the Speakers of both branches of the Legis- lature and the Attorney-General was created. The authority and control of the State were thus clearly emphasized before the institution actually came into existence and began the work of instruction. It was hoped that the Province, in which widely different phases of religious thought were marked characteristic of the population, would accept the amended charter as creating a university entitled to the confidence and support of all. This hope proved delusive. The Governor in 1837 was Sir Francis Bond Head, who exerted his influence to prevent a more complete modification of the charter, and was successful to the extent of securing to the authorities of one church the guidance and control of the University. To the troubled period preceding the opening of King's College belongs the organized oppo- sition of other churches to the project and the establishment of two denomin- ational institutions, that of Victoria College at Cobourg by the Methodists and that of Queen's College at Kingston by the Presbyterians. The corner- stone of new buildings for the University of King's College was laid on the 23rd of April, 1842, and the formal opening of the college took place on the 8th of June, 1843. On both occasions the proceedings were marked by such ceremonial as implied the predominance of the Church of England. The Bishop of Toronto was the first President. Although disappointed in the changes made in the charter, it was evident from the sentiments he expressed that Dr. Strachan had determined to make the best of the new conditions, and to mould, as far as possible, the character and policy of the institution in the form originally planned. This caused the other religious bodies to persevere in the upbuilding of their own colleges, while they maintained an unceasing agitation against the State endowment for higher education being utilized for the benefit of one church. This movement forced the University question into the forefront of party politics. Several attempts were made to pass bills settling the matter. In 1847 the Draper Administration proposed legislation to assume control of the property and distribute the revenues among the colleges of the various religious denominations. Under this arrangement the Anglicans were to receive £3,000 per annum, the Methodists, Presbyterians and Roman Catho- lics £1,500 each. The bill was one of the last acts of a dying Administra- tion, evoked no strong support in the country, and failed to win the approval of Dr. Strachan. The measure was thus fortunately doomed, and withdrawn. The Government fell and the possibilities of a State university were improved rather than injured by the delay. Time was given for the sentiment in favor of an institution acceptable to the whole country to rally and assert itself. The views of the different religious elements were ascer- tained in order to supply a basis for future legislation, and a growing opinion that the State endowment should be utilized for the common benefit steadily made itself felt. To Robert Baldwin and the Government of which he was the head the country owes a declaration of the principles of State education which, in one form or another, has ever since been influential in defining the status and 1906 xiii UNIVERSITY OF TORONTO. underlying purpose of the Provincial University. The Act of 1849 may justly be regarded as the real charter of the institution. It enunciated with a wisdom and liberality far in advance of the ideas then dominant, the prin- ciples which ought to govern the management of a great endowment set apart by the State for higher education. The acute and unfortunate contro- versies of twenty years had inflamed sectarian bitterness, and obscured the real objects sought to be obtained by a university supported from the public funds for the common welfare. To Mr. Baldwin's clear and unprejudiced mind there was but one course to pursue in dealing with an educational trust intended for all. The different religious bodies had created colleges of their own, primarily for theological training, but naturally for general culture also. The Act of 1849 aimed at making the State university a common ground for the youth of the country irrespective of creed. It was unsuccessful because the movement for separate colleges had gone too far. It assumed that these institutions would abandon their degree-conferring powers, and group them- selves amicably around the State university. It created a system of admin- istration which, under the circumstances, was unsuitable and had soon to be modified. But it set forth the noble ideal of a well-equipped and powerful university for a complete training in the liberal arts and sciences, leaving to the religious bodies the exercise of those special influences which make for moral discipline and the development of Christian character. With the assent and co-operation of the colleges, this basis for the settlement of the University question might have been final. It lacked, however, the guarantee of permanence, because the colleges were established at distant points and could not without financial assistance be concentrated in Toronto, which was the seat of the University. Granted the more favorable conditions happily existing to-day, or which even then might perhaps have been produced by a bolder policy in Parliament, Mr. Baldwin's measure would have been a triumph of statesmanship. In this Act are to be found some of the features of the existing constitu- tion. The name of the institution was changed to the University of Toronto. The Governor of the Province was made Visitor. In future the Chancellor was to be elected by Convocation, and the Vice-Chancellor by the Senate. Faculties of Law and Medicine were created. The Caput, a kind of cabinet subject to the Senate, was called into being. The Senate was given extensive powers in respect both to executive control and to legislation. Its statutes were subject to the authority of the Crown only. It was in fact the govern- ing body of the University, discharging the powers of the Crown in all essential matters. Even in the appointment of professors the Crown selected one of three names submitted by the Senate. The secularization of the Uni- versity was provided for by regulations which are perfectly consonant with the public policy of the Province to-day. They afforded no real ground for the cry against a “godless university” that ensued. The Faculty of Divinity was abolished, the right to confer theological degrees taken away, and all relig- ious tests were forbidden. The chief defects in the new law was its failure to secure the friendly alliance and co-operation of the denominational colleges. Although they had come into existence because the State endowment had for xiv No. 42 ROYAL COMMISSION RE years been monopolized by one church, no concession was made to them as the price of yielding up their university powers. The annual revenue from the endowment when in excess of the expenditure was to be added to the .capital. The complaint of "godlessness” became so general and menacing that in the following year an amendment was passed giving the University authorities power to enforce the attendance of students at religious services and to exercise a stricter supervision over their morals and conduct. The discontent of the denominational colleges was not appeased, and it soon became evident that further legislation was required in the interest of edu- cational unity. The Act of 1853 was the next great step in the progress of the University. It asserted once more the principle of a State university uncontrolled by denominationalism, and, as events proved, fixed for upwards of thirty years the conditions under which the institution was to do its work. The Act is remarkable in several respects. Its aim was to provide for the affiliation of . the denominational colleges, to secure their aid and consent in the creation of a common standard of higher education in the Province, and without exact- ing the relinquishment of their degree-conferring powers, to induce them to contribute to the gradual upbuilding of a great central university in the administration of which they would share. To maintain intact a State col- lege, undenominational in character and separate from the University, was one of the chief objects of the measure. In this way University College was constituted. The only concession to the continued demand for a share in the State endowment by the religious bodies was the provision that the surplus of revenue over expenditure, instead of being added to capital, was to be dis- tributed among them. No such division was ever made, because the State college absorbed the whole of the revenue. This condition of things brought about in later years renewed criticism of the University. Parliament issued a Commission to inquire into the financial management, and made grants to the denominational colleges from the Provincial revenues as compensation for their failure to obtain any portion of the funds of the State university. When these grants were discontinued in 1869 by the Government of Mr. Sandfield Macdonald, shortly after the erection of Ontario into a distinct Province, the University and University College were left in supreme possession of the State endowment. Despite the changes and vicissitudes occasioned by new legislation, by alterations in the administrative machinery and by recurrent political agitation, the principle asserted by Mr. Baldwin in 1849 was ultimately victorious although in another form. The maintenance of Uni- versity College, with adequate State endowment, and on a strictly non-sec- tarian basis, has thus become firmly embedded in the educational policy of the Province. Like its predecessors, the Act of 1853 was unsuccessful in unifying the university system of the Province. The denominational institutions con- tinued to be sustained by the self-sacrificing pride of their respective support- ers. Bishop Strachan had added one to their number by calling Trinity College into existence. The Provincial University had, therefore, arrayed against it for some years the powerful influence of the militant element of 1906 XV UNIVERSITY OF TORONTO. The gov- several churches, and it is a striking proof of the hold on the public at large possessed by the idea of undenominational higher education, that during a period when party feeling ran high, and Ministries with narrow majorities in Parliament were searching in every quarter for political support, the Uni- versity of Toronto was able to retain the State endowment, to develop its teaching facilities, to erect costly buildings, to strengthen itself in popular confidence, and to resist the repeated efforts made in and out of Parliament to wrest from it the distinction and authority of State support. The provi- sions of the Act of 1853 are chiefly of value for the light they throw upon the present inquiry by reason of the changes in administrative methods deemed necessary to re-construct and harmonize the whole university system of th3 Province. They do not of themselves supply a remedy for the widely differ- ent conditions with which we have to deal, nor do they in form or in sub- stance furnish a basis for a scheme of government such as we are asked to suggest. The early charters of the University of London were avowedly the models upon which the new constitution was drawn. The object in Eng- land had been to prevent the rise of little universities with the right to grant degrees. The government, therefore, resolved to institute a body which should examine, but not teach. The two great London Colleges were Uni- versity College and King's College, and these, with several medical schools, were affiliated with the University. Following this plan the functions of the University of Toronto were limited to the granting of degrees in Arts, Medicine and Law, and the awarding of scholarships and prizes. erning body was the Senate, all the members of which, including the Chan- cellor and Vice-Chancellor, were appointed by the Crown. (In 1858 the Vice-Chancellorship was made an elective office.) In the event of the Crown not filling vacancies in the Senate, that body might, when its members fell below ten in number, elect suitable persons, being British subjects, to the vacant places. The Governor was continued as Visitor. The statutes of the Senate were approved by the Visitor before going into effect. The undergraduates of all colleges in Upper and Lower Canada, incorporated by Royal charter or by Act of Parliament, could be candidates for the degrees. The Senate could decide what medical or law schools were to be recognized for the purpose of granting degrees. University College was managed an! governed by a President, Vice-President, and a council made up of the pro- fessors. The President and other members of the staff were appointed by the Governor. There 'were to be no religious tests, and no professor or teacher of divinity. The provisions of Mr. Baldwin's Act of 1850, respect- ing the supervision of the conduct and morals of the students and their attendance at public worship in their respective churches, were continued. Professorships in Medicine and in Law were abolished, “except in so far as the same may form part of a general system of liberal education.”' For twenty years the constitution thus outlined formed the University scheme of government, and when, in 1873, a new University Act was passed, the rela- tions of the Provincial institution to the religious colleges were not dealt with. The Act of 1873 provided that the chancellor should be elected tri- xvi No. 42 ROYAL COMMISSION RE ennially by the graduates, and the Senate was reconstituted. Exclusive of the chancellor and ex-officio members it was to consist of twenty-four mem- bers, of whom fifteen were elected by the graduates and nine appointed by the Lieutenant-Governor. A representative was given to the High Schools of the Province. In the same year the Act establishing the School of Prac- tical Science was passed “for instruction in mining, engineering, and the mechanical and manufacturing arts.” The School was to be under the direct control of the Provincial Government, and authority was given to make arrangements for the attendance at lectures in University College by students of the School, and, also, for the affiliation of the institution with the University, but “only to the extent of enabling students of the said School to obtain at the examinations of the said University degrees and honours in Science. THE ACT OF FEDERATION. The time for a momentous change was now at hand. The withdrawal of the legislative grants had embarrassed the denominational colleges. The financial needs of the Provincial University were pressing, and there was active resistance to increased State aid. The demands of science, with the expensive laboratory teaching which it entailed, becaine imperative. The foundation and rise of Cornell University forced upon the Canadian univer- sities the alternative of setting up a costly equipment or of seeing their stu- dents go to the United States for training. The emergency, long foreseen by the few who had bestowed attention upon the scope and tendency of the modern university, came suddenly upon many who were unprepared to grap- ple with it. The situation in Ontario was indefensible. The resources of the people were being spent upon several universities, when one would have sufficed. As early as 1874 one of our body in an address at Trinity College, pointed out the evils of a system of separation. While such a system pre- vailed it was impossible to have a great university. The idea of a national university was thus fairly started. The beginning and culmination of the federation movement embody the most important considerations with which the Commission has had to concern itself. Our instructions enjoin us to have regard to those provisions of the Act of 1887, as re-cast by the Act of 1901, which affect the affiliated and federated bodies. Even in the absence of such instructions the obligation to regard these arrangements with an intelligent sympathy would naturally occur to any body anxious to reach a conclusion just to all concerned. Ani- mated as we are by this spirit we must still state with candour that federa- tion, in itself desirable and necessary, took a form that has laid it open to objections. The existence of this Commission is convincing evidence that the arrangement lacked the essential element of permanence, and, as working basis of union, has proved unsatisfactory. Making due allowance for the difficulties of the case we cannot refrain from remarking that a fed- eration which, within the four corners of the Act, contemplated its own termination at the will of the federated colleges, and which gave them power to resume after short notice all the rights of their original status, tended a 1906 xvii UNIVERSITY OF TORONTO. The persons neither to harmony nor strength. Fresh representations, from time to time, with a view to amending the Act, were almost invited by such a provision. The negotiations which led up to the Act of 1887 may be briefly sum- marized. The Commission, in examining the whole question, has been in possession not only of the official documents printed by order of the Legisla- ture, but the records placed at its disposal by the Chancellor of Victoria Col- lege, and the Provost of Trinity College. The Minister of Education (Hon. . G. W. Ross) invited the authorities of the various universities and colleges in the Province to meet in Toronto on the 24th July, 1884. thus called together were the Vice-Chancellor of the University of Toronto, the President of University College, the Chancellor and Principal of Vic- toria University, the Chancellor and Principal of Queen's University, the Chancellor and Provost of Trinity College, the Principals of St. Michael's College, McMaster Hall, Wycliffe College, Knox College and Woodstock College, and a representative of the Congregational College of British North America. The deliberations of the conference were private. No report of the discussions was made public and no evidence was taken. The conclusions of the conference were expressed in a statement embodying the views of the majority, and upon it was based the Act of 1887, known as the Federation Act. The essential points of agreement were: 1. A confederation of colleges in Toronto carrying on work embraced in the Arts curriculum of the Provincial University. 2. Representation of the federated colleges and universities in the Senate. 3. Graduates of the federated universities to be admitted as graduates of the Provincial University ad eundum gradum. 4. Graduate representation in the Senate of the federated universities, to cease after six years. 5. University College to give instruction in Latin, Greek, Ancient His- tory, French, German, English, Oriental Languages and Moral Philosophy, and to have the power of instituting additional chairs which do not exist in the University. 6. The organization of a teaching faculty in the University with facili- ties for adequate instruction in a stated list of subjects free to all students of the University. 7. The State endowment to be applied to the maintenance of the Pro- vincial University, the University Faculty, and University Col- lege. Those who took part in the proceedings of the conference were favorable to the general principle of federation, although in matters of detail there were differences of opinion. That the desire for consolidation outweighed any objections to the plan is natural when it is remembered how urgent were the financial needs of the Provincial University, and how critical the situa- tion from the standpoint of the independent universities. By united action, 2 T'.c. xviii No. 42 ROYAL COMMISSION RE it was hoped the Legislature could be induced to provide the funds for a great advance in the facilities for higher education, while the religious bodies would be relieved from the necessity of making heavy drafts upon the ge 2 erosity of their supporters. There were some misgivings on all sides. Two of the universities concerned, Queen's and Trinity, ultimately with held their consent to the union. It is to be regretted that the more comprehensive plan was not pressed. The reluctance of the federated bodies to resign their independent existence sprang from causes honourable to them. It arose from pride in their own colleges, and a doubt whether the relinquishment of advantages gained by so much sacrifice and loyalty was a wise step. The acceptance of federation by Victoria in 1890, and by Trinity in 1903, creates a situation which the friends of the Provincial University venture to hope may be permanent. DEFECTS OF THE PRESENT SYSTEM. The situation with which the Commission is appointed to deal presents for the reasons we have indicated a mass of perplexities and anomalies. The scheme of government now in existence would never have been deliberatel: created if efficiency of administration and the academic interests of the Uni- versity had been solely kept in view. The organization of 1853, modified by the changes of 1873, was in itself imperfect. The adoption of federation in 1887, by which the University became a teaching body with provision for the grouping of Arts colleges around it, was a complete reversal of the con- ditions under which the University of London was selected as the model con suuution. The various governing bodies have thus been partly a reflex of the British and partly of the American models. The University has a Chan- cellor, a Vice-Chancellor, and a President, each with vaguely defined func- tions. As a means of perpetuating a divided control no better method can be conceived. Instead of centralized responsibility we have had divided author- ity. Upon the effect of this on the prestige of the University, on the strength and coherency of its policy, and on the discipline of its students, there is no need to dwell. The office of Chancellor has possessed few of the attributes of The office of Vice-Chancellor has been occupied by some of the most influential and devoted friends of the University, but their efforts could not be crowned with permanent results owing to the limitations of the posi- tion. The office of President, by the imposition of multifarious duties and the absence of large initiatory powers, has been reduced to comparative impotence. We have no doubt that one of the principal contributory causes of this condition is the exceptional and unsatisfactory method by which the powers of the Crown in relation to the University have been exercised. No parallel to this method exists either in Great Britain or in North America. The State-owned and State-supported universities of Michigan, Wisconsin and other States of the American Union offer the closest examples for comparison. In these cases the State invariably delegates its power to trustees or regents. real power. 1906 xix UNIVERSITY OF TORONTO. These trustees are either appointed by the Governor of the State or are elected by the people. To administer the affairs of a State university by a political government, occupied with different matters, constantly changing its party character, and gifted with no special talent for the management of universi- ties, has not commended itself to a practical and progressive people. We see no ground for the belief that this plan of direct State control, rejected abroad and in ill-repute at home, can be made a success in this Province. Another inherent defect in the administrative system is the lack of a clearly defined distribution of authority in matters of academic policy. This is partly due to the plan of federation itself, but is intensified by the exis- tence of several governing bodies with overlapping powers and with liberty to act independently of one another. It is also seen in the slackness of the federal bond which seems to assume at every turn the possibility of sudden termination. The Senate with guaranteed representation for the federated universities and colleges is a fluctuating body which delegates its most important work to committees. The University Council is not constituted so as to promote unity of action either in an executive or advisory capacity. The Council of University College is unable to invite and secure that co-operation with the faculties of the other Arts Colleges and the University Faculty which would promote academic efficiency. The absence of proper machinery for the direction of the student body in its various relations and for the maintenance of order is also a source of difficulty. A remedy for these defects could easily be found in the complete recast- ing of the University constitution, but as regard is to be had for the rights of the federated members, other means must be sought. A co-oper- ation of the various bodies, the creation of a simpler central authority, and a clearer definition of the place and working of each part in the whole scheme is the course which, after careful investigation, appears to be the most feas- ible and desirable. The University has also suffered, through a long period of years, from an insufficient revenue. The effects produced by financial stress and strain need no description. At the time when expansion in University work is almost inde- finite and imperatively required, if our national equipment for higher edu- cation is to keep pace with the demand, the policy of crippling the State university is shortsighted and might prove disastrous. We have already referred to the duty of the Province in this respect. Not less is it the inter- est of the State to devote a generous share of the public funds to the develop- ment of an institution so intimately associated with the material interests of the country. Canada must train her own sons to be her captains of industry. The agricultural, mineral and forest wealth and the water power of this Pro- vince call for a practical capacity and a specialized knowledge which only a modern university can supply, and it is the happy function of the Legislature not only to sustain the moral influences that come from higher education but to contribute to the national prosperity by adequate votes of money for the training of youth. We are strongly of opinion that the University's claim for increased endowment canno', either in wisdom or in safety, be delayed or resisted. XX No. 42 ROYAL COMMISSION RE OUTLINE OF SUGGESTED RECONSTRUCTION. In drawing up a scheme of government for the University we have kept in view and have had regard to those special conditions which cannot be ignored if the suggested reforms are to be practicable and effectual. The con- siderations that have thus weighed with the Commission are: first, that the University has a history and traditions expressed in the structure of its constitution; second, that it is a federal institution uniting in one field of operation the training given by the State with the training given by several religious colleges; third, that the purpose of the reconstruction is to simplify the system and co-ordinate the duties and powers of the various bodies; fourth, that the University is the possession of the people of the Pro- vince and should be so governed as to produce the highest type of educational service consistent with the resources placed at its command; fifth, that the support given by the State should be measured only by the educational needs of the people. To this end we may briefly summarize the principal conclu- sions to which we have come: 1. The powers of the Crown in respect to the control and management of the University should be vested in a Board of Governors, chosen by the Lieutenant-Governor-in-Council, and subject by the method of appointment and by the regulation of their proceedings, to the perpetual authority of the state. 2. The Senate, with its legislative and executive powers and based upon the principle of representation of the federated and affiliated insti- tutions and the faculties and graduates, should direct the academic interests of the University. 3. The School of Practical Science should be united with the University as its Faculty of Applied Science and Engineering, and the same intimate connection should, as far as practicable, apply to the rela- tions of the Faculty of Medicine to the University. 4. University College should continue as now constituted, with a Prin- cipal, Faculty Council and Registrar of its own, its administration being under the direction of its Faculty Council, subject to the control of the Governors, and appointments to the staff being made on the recommendation of the President of the University. 5. There should be created, a Council of the Faculty of Arts composed of the faculties of all the Arts colleges and representatives of the federated colleges, and a Council for each Faculty. 6. There should be created a Caput or advisory committee, having authority in certain matters of University discipline, which may act as advisory to the President. 7. The office of Chancellor should be retained, its occupant to be elected by the graduates and to preside over Convocation and confer degrees. 8. The office of Vice-Chancellor should no longer exist, its functions and duties being transferred, in certain respects, to the President. 9. The office of President should be clothed with additional powers, making its occupant in fact as well as in name the chief executive officer of the University. 1906 xxi UNIVERSITY OF TORONTO. The plan of re-organization of which the above is a synopsis, aims at dividing the administration of the University between the Governors, who will possess the general oversight and financial control now vested in the State, and the Senate, with the Faculty Councils, which will direct the academic work and policy. Upon these two executive branches and whatever dependent machinery may be set up to carry out their authority, the whole administration should rest. They are designed to be the permanent agen- cies in the system of government, with their spheres of operation clearly defined and the functions of each duly prescribed. To the Governors will fall the guidance and management of the University in the broad sense, now divided between the Lieutenant-Governor-in-Council and the Board of Trus- tees. To the Senate will be assigned the duty of determining the extent and character of the teaching work of the University and University College, the suggesting of new faculties, departments and chairs, approval of the courses of study, the conferring of degrees, and the whole range of subjects included in the academic programme, subject in most cases to the approval of the Board. The Governors and the Senate, between them, comprise those portions of the administrative system which will probably not be altered in the process of time. The other parts of the system may be changed or modi- fied as experience suggests. The connecting bond between the Governors and the Senate should be the President. His identification with the academic side of the University life makes him the natural channel of communication between the two. His powers should be sufficiently defined to constitute him the general execu- tive officer, subject to the Governors, and the representative of those special University interests which are under the guardianship of the Senate. THE BOARD OF GOVERNORS. To administer the affairs of a great University with vigour and dis- tinction is well-nigh impossible unless the central authority is strong and devotes itself without ulterior interests and motives to the single purpose entrusted to it. The history of the Provincial University has demonstrated the disadvantage of direct political control. Despite the zealous efforts of statesmen and educationists the University became on many occasions in times past the sport of acrimonious party disputes. Its interests were inextricably confused in the popular mind with party politics, although with these it had, in reality, little concern. The various Ministries which at different times since 1839 have tried to re-construct the system of adminis- tration, instead of handing over to the authorities of the University the carrying on of its affairs, reserving to the State the power of controlling and resuming the trust if conditions rendered that proceeding advisable, bur- dened themselves with a responsibility which, in many respects, they were un-fitted to discharge. The fruits of this policy have been a gradual decline of public sympathy with the pecuniary needs of the University, and an element of uncertainty and impotence in its internal management. The progress of the University has been due to its situation in the richest Pro- xxii No. 42 ROYAL COMMISSION RE vince of the Dominion, to the prestige of connection with the State, to the talents of its professiorate, and the too often unappreciated labours of its governing bodies. Under circumstances that were at times discouraging, ond subject to influences that tended to disintegration rather than develop- ment, a task demanding unity of aim and concentration of energy has been sustained with difficulty. A complete change is imperative if the University is to fulfil the high purposes which modern educational conditions have made essential to the well-being of the country. We have examined the governmental systems of other State Universi- ties upon this continent and have found a surprising unanimity of view upon the propriety of divorcing them from the direct superintendence of political powers. In Minnesota the Governor appoints a Board of nine regents with three additional ex-officio members. In Wisconsin the regents are appointed by the Governor, while in Michigan they are elected by the people of the State. The tradition in these and other States is to keep the university free from party control. The regents may be party men, but it is generally a custom to re-appoint them, whether the Governor for the time being is of the same political opinion or not, so that the two political parties are represented on the Board. In earlier days traces of political influence were seen, but the tendency now is for the Legislatures to vote the necessary supplies without hesitation, and to leave to the university authorities the management of the institution. The position of regent is considered a high honour and is bestowed upon some of the chief citizens of the State who serve without remuneration. It is found by experience that the Legislatures do not cease to act with generosity because the university is not a department of the State Government. The contrary is the case. The State universities flourish under a system which frees them from party interference. A proposal to delegate the powers of the Crown to a Board of Governors is dictated by the desire to impart strength, continuity and freedom of action to the supreme governing body. It is in accord with the practice of other communities possessing State universities, and is supported by the unanimous testimony of those whose advice has been sought. It is designed to secure an instrument of administration truly representative of the whole Province. In order that no part of the State's authority shall be surrendered, and that the University shall retain the advantages and enjoy the dignity of State support, we recommend that the Governors be nominated by the Lieutenant- Governor in Council. The suggestion that some of them should be elected by the graduates was the subject of long and careful consideration. The loyal affection of the alumni for their Alma Mater we recognize as a valuable factor in the formation of public opinion favourable to the interests of the University. This feeling is one honourable to the graduates themselves, and in the case of privately-endowed universities has been productive of much benefit. The Chancellor, whose office has existed since the foundation of King's College, is chosen by the votes of the graduates and has a place, ex- officio, on the governing Board. This office, in our opinion, should be pre- served. The President should also be a member, ex-officio, of the Board. With these exceptions the Governors should be named by the Lieutenant- 1906 xxiii UNIVERSITY OF TORONTO. Governor in Council. In our opinion no step should be taken to lessen the responsibility of the Legislature for the efficient management and support of the institution. To confer upon the graduates the power to elect some of their number to the Board would divest the State of its full control of the governing body. This, in our opinion, would be unwise. We assume that in the selection of Governors the Government will not from time to time over- look the claims of suitable persons who are graduates to membership on the Board and thus confer the distinction without impairing the authority of the Crown over the University. This authority should be fully asserted in three ways, first, by the provision that of the fifteen Governors all except the two ex-officio members should be appointed by and removable at the pleasure of the Lieutenant-Governor in Council; second, that detailed statements of the expenditures and the investments should be annually furnished to the Gov- ernment; and, third, by the provision that no expenditure involving any encroachment on the endowment should be made without the sanction of the Lieutenant-Governor in Council. With these limitations, designed not to hamper the governing body in the management of the trust, but to preserve unimpaired the control of the State, the Governors would exercise all the authority which is needful. The Governors, if fifteen in number, would be sufficiently numerous to permit of their being drawn from different parts of the Province. They should be representative men. The position of Governor is one of such dig- nity and importance as to command the services of the most influential and experienced. The Government should appoint the chairman of the Board. The term of appointment we suggest is six years, three of the members of the first Board retiring at the end of two and five at the end of four years. This ensures a more or less permanent body frequently recruited by the Govern- ment from those who represent the latest phases of University opinion or pos- sess other desirable qualities. The Board, therefore, would be in touch with public sentiment. While the duties and responsibilities of this new govern- ing body in respect to the finances of the University are analogous to those now discharged by the trustees, the enlarged status and privileges conferred distinguish it completely from the Board it displaces. The Governors may be expected to regard the high trust they are to assume from the broadest standpoint. The University is a federal institution. The vitality and pros- perity of every federal unit of it will determine the success of the whole. The Governors, having no party interests to serve, and no personal ends to promote, not being representative of a particular college or its interests or of the State institution alone, should command the confidence of the Province. The power of appointment should be vested in the Governors, the appoint- ments to the teaching staffs of the University, of University College and all Faculties controlled by the State being made upon the recommendation of the President. THE SENATE. By the federation Acts, the Senate is an essential element in the University constitution. To abolish it would disturb the harmony at present xxiv No. 42 ROYAL COMMISSION RE existing, and re-open controversies which it would be inadvisable to revive. The labours of the Commission have been directed to strengthening the bond of federation rather than to impairing it by suggesting drastic modi- fications which would probably bear fruit in discontent and suspicion, if not actual disruption. By their representation in the Senate, the federated insti- tutions are secured in their right of sharing in the determination of academic policy. They are given a voice in the framing of the courses of study, the prescribing of the conditions for granting degrees, as well as in legislation affecting other academic matters in which they are interested. They are also guaranteed against radical alterations in the division of subjects in Arts between the College and the University. This division of subjects is an illogical arrangement, but the Commission does not desire to interfere with it, since it is part of the existing understanding between the University and the federated bodies. At present, changes in this division of subjects cannot be made without the unanimous vote of the Senate. The power to change should be made conditional upon the decision of the colleges affected, without requiring unanimity in the Senate. The Senate, owing to its representative quality, is necessarily large and the attendance fluctuates. Much of its work has, in practice, been relegated to committees. Experience has shown that the reports of these committees must, in general, be adopted without debate, if the transaction of business is not to be unduly delayed. The Senate, therefore, has in process of time become a deliberative assemblage where the larger questions of academic con. cern are reviewed and discussed. It brings together representatives of the State college and State faculty, of the federated and affiliated institutions, and of the graduates. The Collegiate Institute and High School teachers have also been permitted to send two members to represent them, and as the secondary schools have a strong interest in the course of study and the standard of matriculation, and is the University ought to enlarge its facili- ties for the training of teachers, their representation in the Senate should be increased. The proportionate representation of the colleges, through their faculties and graduates, should be respected, and in order that the graduates should contribute to the Senate the stimulus of intelligent encour- agement and criticism from their own ranks, thus helping to keep the Uni- versity more intimately in touch with the outside world, we recommend that members of the teaching staff shall no longer be eligible as candidates for the graduate vote. No one within the University should have any disposi- tion or inducement to meddle with the choice of the graduates. The Faculty representation should be equalized and increased, and the composition of the Senate as a whole, while distinctly academic in its quality and outlook, should provide for a sufficiently large non-academic element. Having developed into a ratifying and deliberative body, the Senate need not be called together as frequently as heretofore. The work now performed by the Senate committees might properly be transferred to Faculty Councils, and, with this devolution of authority, we shall presently deal. 1906 XXV UNIVERSITY OF TORONTO. THE OFFICE OF PRESIDENT. The autocratic presidency is associated in the popular mind with many universities in the United States. The growth of duties that are chiefly administrative in modern universities demands a man of unusual executive ability, and if he is, in addition, a man of academic distinction, he natur- ally becomes the outstanding figure and the ultimate source of authority. Both in the privately-endowed and State-supported universities of the Repub- lic force of character and the talent for administration readily secure for the I resident large powers. Usually there are no specific enactments giving to him the extensive authority which he exercises. As a rule, the person- ality of the man determines the extent of his powers. There is common, although not unanimous, acquiescence in this method of control. The situa- tion is not without its dangers, and there is observable some tendency to question the advisability of one-man power with its possible effect of weaken- ing the other parts of the system. In Canada the influences have been in a contrary direction. The changes made from time to time in the constitution of the University have, rather from accident than design, reduced the powers of the President to a degree which has provoked from one quarter the ironical remark that it might be in contemplation to abolish the office and thus effect a saving of salary. This was actually the condition during the twenty year period following 1853, the position retained being that of President of University College, who was not a member of the governing body of the University. To this may, perhaps, be traced the reluctance in subsequent legislation to assign to the Presidency any particular importance in the general scheme of administration. Ву the Act of 1873 the President was given a place in the Senate, and when federation was authorized in 1887, and the University became a teaching body, the functions of the office were necessarily enlarged, although the Vice- Chancellor remained chairman of the Senate, and thus divided with the President the chief place in academic matters. When the University Act was revised in 1901 the duties of the position were set forth in some detail but not with the effect of enhancing its authority or making it a 'working force. The practice and traditions of half a century, therefore, have tended lo curtail the power of the President, and to deprive the University adminis- tration of that directing executive quality which in every department of effort in the modern world is regarded as indispensable. To rectify this blunder it is unnecessary to advocate the creation of an autocrat, or to magnify one portion of the system at the expense of the others. By delegating to a Board of Governors the general control of the University and leaving to the Senate general oversight of academic matters, the office of President assumes its natural place, and may be clothed with such auth- ority as must greatly tend to strengthen and simplify the machinery of gov- ernment. At present when appointments are made by the Lieutenant-Gov. ernor in Council, when the purse is controlled by the Board of Trustees, wher the Senate, with the Vice-Chancellor as chairman, directs academic policy, xxvi No. 42 ROYAL COMMISSION RE and the President is also one of the teaching staff, the Presidency is not made an office of sufficient importance in the University. The head of a great university, to be influential, must have wide powers, but he need not be supreme. We believe that the Governors, as representing the Crown, should select the President. As their appointment for short terms ensures their accepta- bility to the public, so he, owing his appointment to them, must work in har- mony with them, and be amenable in all respects to their supervision. The lest of his success as an administrator will be his ability to secure the co-op- eration of the Governors since, lacking their ratification of his acts, all his efforts must be futile. He should be relieved of all teaching duties. He should be a member, ex-officio, of the governing body, but not its chairman. He should preside at meetings of the Senate. This would bring him into constant and intimate contact with both the business and the academic side of the administration. He should be, in general, the channel of communication, between the Gov- ernors and other academical bodies. The President should possess those &cademic sympathies and qualifications which would make him a suitable chairman of the academic body, the Senate. He should also preside over the Council of the Faculty of Arts, of right attend meetings of all other councils, and be given power to summon meetings of any faculty, or joint meetings of faculties. This would centralize responsibility, the lack of which, in our judgment, has been one of the serious defects of the present system. The distribution of power over so many agencies, with the final appeal to a political Ministry, entails upon the executive officer of such a system, a continual effort to reconcile conflicting elements without in the end being able to enforce the decision. The question of making appointments to the staff concerns the very life of the University. It is clear that the governing body should make all appointments. The method of procedure is of the first importance. Every possible assurance should exist that the efficiency of the staff is not deter- mined on any other ground than that of merit and quality. In the case of a University with a history extending over sixty years there is sure to be abundance of evidence to serve as a warning of what to avoid and to suggest the best method of filling vacancies, making promotions, and deciding upon retirements. The right to recommend should rest with the President, who, as the academic head, is the natural adviser of the governing body. With- out his recommendation the responsibility of action would be divided. Appointments therefore should be conditional upon his nomination. The President, under such circumstances, would necessarily consult with those distinctly qualified to give him advice. The fact that the Governors would hold him responsible for the character and fitness of the appointment would render him careful to exhaust every possible avenue of information. It would entail a constant search for promising men in every department of university work, and compel the President to have a knowledge of the stand- ard of ability required in other universities which he would be free to apply 1906 Xxvii UNIVERSITY OF TORONTO. at home. The spirit in which this duty would be discharged, and the mea- sure of success attending it would go far to indicate his own fitness. The highly important, and at times delicate, task of ensuring the maintenance of the quality of the work done by the individual members of the staff is also best performed by the President. THE CHANCELLOR AND CONVOCATION. It has already been said that the office of Chancellor, which secures to the graduates an elective representative on both the Board of Governors and the Senate, should be retained. Its abolition would eliminate from the University system a position created in the original Royal Charter of King's College, and possessing many historic associations. It has survived the numerous legislative changes of seventy years, and its duties have always been discharged with honour to the occupant and with benefit to the Univer- sity. The Chancellor is intended to represent, in his office and duties, the academic status of the institution, to preside at Convocation, and to confer all degrees. As chairman of Convocation, his opportunity to create for the graduate body in the University organism a distinct and honourable place, assigns to him a function of much consequence. We believe that Convoca- tion should be retained, and that its right to organize, hold regular meetings, and exert itself to promote the academic interests of the University in such ways as it sees fit, should be continued to it by statute. The influence of the graduates in favor of the University shows a marked tendency to increase. In the case of a State institution their place in the system has not yet been definitely fixed. They possess, however, many opportunities of serving the University. Their influence could be exerted in the direction of securing private benefactions for the institution. The older a university grows the more important an element in the community the graduates become, and it is our opinion that Convocation should meet more frequently, and that its representations to the governing board, expressing the conclusions of the graduate body, would be of practical value in shaping University policy. The Vice-Chancellorship stands in a different position from the office of Chancellor. In the English Universities the Vice-Chancellor is usually identical with the President or Principal in this country. To maintain both offices is to weaken one. We would recommend its discontinuance so that the President may be chairman of the Senate, and exercise such general powers of management as have hitherto fallen to the Vice-Chancellor. FACULTY COUNCILS. We have already referred to the propriety of creating Faculty Councils. First, there ought to be, in our opinion, a Council of the Faculty of Arts made up of the teaching staffs of University College, the Faculty of Arts in the University, and the Arts Faculties of Victoria College and Trinity Col- lege. University College should have, as at present, its Faculty Council, The Faculty of Applied Science and the Faculty of Medicine should, each xxviii No. 42 ROYAL COMMISSION RE of them, continue to have its Faculty Council. While the members of the teaching staff in each Faculty should be members of the Council, the lectur. ers and instructors should act as assessors, and have no votes. Under this system a Faculty would practically have control of its own affairs. Much of the work now done by committees of the Senate could, we believe, be better done by Faculty Councils. Each Council should be presided over by its own dean, and, in the case of the Council of the Faculty of Arts, the chairman should be the President of the University. The proceedings of the Councils would, under the arrangements we propose, be subject to ratifica- tion by the Senate, but, in practice, they would be the working bodies in academic matters, and their decisions would probably be ratified in most cases as a matter of course. The Councils would frame their courses of study, appoint examiners, and conduct the examinations. They would deal with applications and memorials by the students, and in all Faculty matters, except discipline, exercise full executive control, subject to approval by the Senate. The most important of these Councils would be the Council of the Faculty of Arts. The admission of the federated bodies to a University Council of this kind would be an important step, but one which could not fail to promote a better understanding in the work that all are doing in The relations between the teaching staffs would result in such agreement in respect to lectures, courses of study, methods of teaching, and other matters as cannot now be effectively secured. The healthy spirit of emulation between the colleges, which is a valuable element in the college system, does not preclude practical and reasonable co-operation. There has been in existence for some time a system of interchange of lectures in certain subjects between the colleges. It has prevented unnecessary duplication of work, and should confer upon the student a real advantage. As no machinery had been provided for the regulation of this system, it was necessary to effect it by a voluntary agreement limited in its scope. The Council could legal- ize, regulate, and, if necessary, extend this arrangement. It could also deal generally as experience suggests with matters in connection with the courses of teaching. An intimate association of all the teachers in Arts subjects would, we believe, tend to unification, and a higher standard of efficiency. common. a THE CAPUT The appointment of a Caput, or committee, consisting of the President and the heads of the various federated institutions, and the Deans of Facul- ties, would be another step in the direction of effective co-operation in Uni- versity matters. Without encroaching upon the rights of others the differ- ent members of the federated system, especially the heads of colleges, fini themselves confronted by special conditions that call for unity of action. At present the President and the heads of the colleges are unprovided with legal means for joint action in certain matters of discipline. In these cases their conferences must be informal, and their decisions without binding 1906 XXIX UNIVERSITY OF TORONTO. effect. The absence of definite authority to enforce order amongst the under- graduates in specified circumstances where the jurisdictions of the University and the colleges appear to be ill-defined, is not a salutary condition. The Caput would provide for such emergencies. Through such a body the Pre- sident of the University would have the opportunity of consulting the college heads when, in his judgment, the common interest demands it. The Caput should, conversely, be given the privilege of advising the President on ques- tions that are manifestly of University concern, provided, always, that his freedom of action is not hampered, and that the scope of his executive duties is not curtailed by the advice tendered to him. UNIVERSITY COLLEGE. The maintenance of the system of education provided by the State in University College and the Faculty of Arts in the University is, in our opin- ion, of the utmost importance. The division of the Arts curriculum into these two parts should not lessen the claim of University College for strong and sufficient financial support. From this standpoint it ought to be regarded as one effort, neither part being developed at the expense of the other, but both entitled to adequate aid from the endowment provided by the State. For this reason we consider that a common purse for the whole State system of education in the liberal arts and sciences is essential, and that the govern- ing body of the University should also be the governing body of University College. In maintaining the college system the prosperity of University College must be regarded as a cardinal principle. Anything that would weaken University College would weaken the federal system since this system is based upon the Arts teaching provided by the State, and the effi- ciency of this teaching is the efficiency of the University. The division of subjects made in 1887 was the basis of the agreement with the federated bodies. This division is artificial, and not easily defended, but it ought to be respected, because the federated bodies consider it to be of vital import- ance to them. Out of regard, therefore, for the stability of the federal system we recommend its continuance in good faith, no transfer of subjects taking place without the full concurrence of the federated colleges. As a matter deemed of moment by them, we also recommend that University College be separately officered with a Principal, a Faculty, and a Registrar The Principal should be appointed by the governing body on the recommendation of the President of the University. The time has now come, we think, when the policy of maintaining a complete system of higher education by the State with one purse and one governing board, should be regarded as definitely settled. The compact with the federated bodies should be loyally kept by the State, and the affairs of the University admin- istered with due regard to the welfare of all parts of the system. But this should include a common control of the State college and Arts Faculty, and a clear recognition that the endowment is intended for both. of its own. XXX No. 42 ROYAL COMMISSION RE THE SCHOOL OF PRACTICAL SCIENCE. The nature of the tie between the School of Practical Science and the University has long been one of the anomalies of the administrative system. The form in which their relations were cast by successive Acts of the Leg- islature, and by Orders-in-Council, has been, we are convinced, injurious to both institutions. On the one hand, the School has been separately controlled and man- aged, and supported by a separate vote of money in the Legislature. This removed it, as far as possible, from its rightful share in the prestige of the Provincial University. Encouraged by a false show of independence, it has been at the mercy of the financial exigencies of successive Ministries. The Department of Education, directly responsible for its financial and academic progress, has been attempting to do for one part of the University what, in logic and consistency, it ought to have been doing for all. This exceptional treatment has not justified itself. The Principal and professors, displaying marked zeal and diligence in their executive and teaching duties, have been underpaid and overworked. The School has made wonderful progress on insufficient funds. The students, who include so many of the alert and active minds of the Province, have scarcely felt themselves to be part of the Uni- versity body. On the other hand, the University has suffered from the inclusion of a Faculty subject in no adequate sense to its general control and discipline. The University, having no control over its Science Faculty, has been deprived of a powerful lever in appealing for national support. The executive func- tions of the University have been weakened, and the problem of student dis- cipline has not been rendered easier. To account for this defective administration we must go back to the Act of 1873, already quoted, which established the School when the future scope of University teaching in the realm of the applied sciences was not fully understood. Contemporary in origin with the establishment of the Agri- cultural College, the School of Science, like its flourishing ally, was per- mitted to develop separately from the University. The policy pursued in the State-owned universities of the United States is to have the Faculties of Science and Agriculture in visible unity with the whole institution, and this has, doubtless, led to more generous endowments from the Legislatures than if the claims of higher education had been less strikingly demonstrated. In recommending the union of the School of Practical Science with the Provincial University the belief of the Commission is that closer relatious will be of advantage to both. In a new country like Canada, with an era of constructive undertakings before it, with undeveloped wealth in farm, forest, mine and water power, the practical part of the University course is of importance. The Provincial system of education must take into account all the educational requirements of the country. The development of the natural riches of our northern region creates many openings in engineering and industrial work. This provides careers for men with the requi- 1906 xxxi UNIVERSITY OF TORONTO. site skill and training. There has been, during the past few years, a large increase in the number of students in the School of Practical Science. For the Province to turn a deaf ear to the need of greater support for this class of training would be a mistaken policy. The scope of usefulness for the Faculty of Applied Science and Engineering is widening. The Science Faculty must not only perform its University functions, but, if possible, minister to the popular demand for special technical instruction. Its labora- tory equipment might be employed for the benefit of those who intend to apply their knowledge to the manufacturing arts and industries without being registered students of the University. The extension of training in science by means of lectures delivered at the chief centres of the Province, and the enlargement of museum facilities for the study and display of our natural resources, are questions which also press for early consideration. The exact relation which the Science Faculty should bear toward the primary technical schools of the Province, so that its equipment may stimulate and serve this department of State education, calls for thorough inquiry and decision. On the inclusion of the School of Practical Science in the University the sums voted by the Legislature for both will be added together. The total amount will, therefore, bear the appearance of larger expenditure, when, in reality, it will be a transfer of expenditure. This should not be misunder- stood. It does not free the Legislature from its responsibility in respect to science training. Otherwise the union of the School with the University would prove a burden upon the latter. THE FACULTY OF MEDICINE. In the relation of the Faculty of Medicine to the University we have another of those defects in the administrative system which weaken executive control of the whole institution. The Faculty differs from other component parts of the University in several important respects. Its efficiency is mainly due to the personal sacrifices made by its teachers, who receive inadequate remuneration for their services. It is self-supporting, and this ensures a quasi- independence. The members of the Faculty are animated by that honourabla zeal for the standard of the profession characteristic of medical men gener- ally, and are able to give practical force to their convictions. What the State saves at the expense of the profession it loses in the opportunity of helr- ing to build up, as it ought to do, a great school of medicine, and in the absence of a contributory factor to the compact strength of the University. The Commission realizes that the situation, in respect of the Faculty of Medicine, is intricate, and not free from perplexity. It is well that several aspects of the subiect should be clearly stated and courageously faced. The precise attitude of the public mind toward strictly professional training is not easily defined. What the State universities elsewhere have alread- grasped mora firmly and intelligently than has been realized in Ontario, is the public value of medical education and its intimate relation to the health At no distant date the Faculty of Medicine should stand on of the people. xxxii No. 42 ROYAL COMMISSION RE a the same footing as other Faculties, its cost over and above the fees of the students being borne by the State, and its management being identified with the governing authorities of the University. That this policy has always been recognized, although in a half-hearted manner, is evident from the his- tory of the University. More from dismay at the prospect of the expenditure involved than from any rooted disbelief in public responsibility for medical training the Legislature abolished the Medical Faculty of the University in 1853, and recognized the work done in the proprietory schools. This lame expedient led to the multiplication of schools, and to defective training. To the sagacity and unselfishness of the profession itself is chiefly due the excel- lent status of the medical profession in the Province. The University Act of 1887, however, wisely conferred upon the Senate the power to erect a Faculty of Medicine, and enacted that the professors, the scale of fees, and the student body should be completely under University regulations. The Act also imposed the cost of the Department of Physiology upon the University. The significance of this step has a direct relation to certain recommendations which we propose presently to offer. Shortly after 1887 the Toronto School of Medicine became the Medical Faculty of the University, and, subsequently, amalgamation with the Trinity Medical Faculty took place. This consolidation, with the consequent im- provement in educational facilities and the rapid growth in the number of students, has been effected at a minimum of cost to the University and the Province, and a maximum of effort and sacrifice on the part of individual members of the Faculty. That a rich and intelligent community like On- tario should owe much of the value of the Provincial Faculty of Medicine to the enlightened generosity of eminent physicians who draw upon the emolu- ments of their private practice to maintain the efficiency of medical educa- tion, is a condition which, to state plainly, is to condemn. The somewhat complicated financial scheme which supports the Faculty from year to year has this general effect: a percentage of the fees is handed over to the University to pay for the training in Arts subjects of medical students, and for other purposes, and of the remaining income 40 per cent. pays the working expenses of the Faculty, and 60 per cent. is intended to pay the salaries of the teaching members. The cost of additional equipment necessary from time to time falls upon that portion of the income devoted to paying salaries, so that the members of the professoriate must either deduct this charge from their remuneration or allow the teaching equipment to lag behind its requirements. Such a deduction they have made over a long series This position of affairs has led to a special inquiry by the Com- mission into the progress and prospects of the Faculty, and to a consideration of what measures of reform in the present system might properly be recom- mended. The question involves not merely the necessary advancement in ordinary medical education, but also the prosecution of research work, in the results of which the country has so deep an interest and from which it may reap so great a benefit. In the promotion of both the State has obligatione. The extent of these obligations it may be difficult now to determine. may, however, express the opinion that the future relations of the Faculty and the University should be radically modified, and that some, at least, of of years. We 1906 xxxiii UNIVERSITY OF TORONTO. the claims of medical science upon the University should receive immediate acknowledgment. What may be termed the scientific branches of medicine are already in most modern universities included in the list of subjects of the Arts course. This is true of Physiology in the University of Toronto, which was estab- lished as a University chair in 1887. To this additions should now be made. Under the terms of agreement which united the Medical Faculties of Tor- onto and Trinity in 1903, the foundation of new chairs in Hygiene and Pub- lic Health, Experimental Therapeutics and Pharmacology, and Medical Jur- isprudence, and Toxicology was recommended. The maintenance of the present chairs of Pathology and Anatomy in the Medical Faculty, it is urged, should be paid out of the general income of the University, and, furthermore, the Medical Faculty should be relieved of the fees for instruction in Arts subjects, such as Chemistry, Biology, Physiology and Physics, seeing that the students of the School of Science and of the federated universities are not charged fees for these subjects. To what length the University should go in granting these measures of relief to the Medical Faculty demands early attention by the governing body. The payment of the salary of one Profes- sor of Pathology and one Professor of Anatomy by the University, and the creation of chairs in Hygiene and Pharmacology, ought to be sanctioned, and an extension of this policy from time to time, as the University finances permit, seems to us right and proper. When the relation of the Faculty to the University becomes the same as that of other Faculties there ought to be a complete re-casting of present conditions. The system of financial administration should be altered, and the relations of Faculty and University placed on a footing satisfactory to both, after friendly conference and consideration. Under the arrangements we propose the President of the University would be ex-officio a member of the Faculty, so that in future his recommendations as to appointments will be made after close consultation with those best qualified to advise him. + MEDICAL TRAINING FOR WOMEN. The medical education of women is a subject which was brought before the Commission by the Faculty and Alumnae of the Ontario Medical College for Women. Of the many phases of co-education this is the most serious. The training of men and women together in the medical course entails not only practical difficulties, but also, in some measure, requires a condition of public opinion favorable to the idea. In Canada the absence of such approval years ago led to the creation of separate medical schools. The Ontario Medical College for Women has been in existence for twenty- three years. Its maintenance has been due to the personal exertions of the members of its Faculty, who have sympathized with the desire of women to obtain medical training. The limited number of students who have sought the privilege makes the carrying on of the school a matter of sacrifice and uncertainty. During five years the total average yearly attendance has been 3 U.C. xxxiv No. 42 ROYAL COMMISSION RE thirty students, the fees from whom have just sufficed to pay the running expenses, without providing adequate compensation for the teachers. In a memorial to the Commission it was represented: First, that when the number of students fell below that necessary to maintain the College, women would demand admission to the Faculty of Medicine of the University on equal terms with men; secondly, that the refusal to admit women students was ex- ceptional and anomalous; thirdly, that a Faculty of Medicine for Women should be recommended by the Commission. We do not feel warranted in recommending the formation of such a faculty. The memorial also declared that “as far as the Ontario Medical College for Women is concerned, they merely desire that women should have an opportunity of pursuing their medi- cal studies unmolested, on fair and equal terms with the men.” This being the aim of the advocates of medical training for women, it seemed to us reasonable that some means should be devised of meeting the request. The subject has since been dealt with by a committee of the Senate which, after conference with the Faculty of Medicine, has communicated to us the results of its deliberations. In future women will be admitted to registration in the Faculty of Medicine. This appears to be the simplest solution. The precise form in which the Faculty has communicated its views to the Senate is as follows: “That in view of certain prospective changes which are suggested in connection with the method of providing instruction in Medicine for Women in Toronto the Faculty of Medicine of the University of Toronto is now prepared to register female students in Medicine, and agrees that whatever arrangements are deemed necessary should be made for their instruction.” THE FACULTY OF LAW. Although the establishment of a complete Faculty of Law has long been under consideration its organization is still in an inchoate condition. The charter of King's College did not provide in express terms for a Faculty of Law, but authority was given to set up other Faculties besides that of Arts and, since 1849, the University Acts have contained provisions for the estab- lishment of such a Faculty. The Act of 1887 expressly declares the inten- tion of the Legislature in this respect, and the subsequent founding of chairs in Political Economy, Constitutional Law and Constitutional History is the first stage in the creation of a Faculty in which the study of law as a science can be carried on. Legal education and admission to practice law have been from an early period under the control of the Law Society of Upper Canada. Until the year 1889 no systematic course of teaching was in operation, but in that year the present Law School was established by the Law Society. Attendance upon a course of instruction in the School is a necessary condition of call to the Bar and admission to practice as a solicitor. Since 1873 the Law Society has been entitled to representation on the Senate of the University, and pro- 1906 XXXV UNIVERSITY OF TORONTO. vision is made by the Senate for accepting pro tanto the examinations of the Law Society for any of its students who are proceeding to the degree of Bache- lor of Law in the University, though no reciprocal action has been taken by the Law Society. In our opinion it is desirable that a Faculty of Law should be established in the University, and that, if possible, arrangements should be made with the Law Society by which the duplication of the work which is common to both in the courses of instruction may be avoided. Such an arrangement would, we believe, result in a considerable saving of expense both to the University and to the Law Society, and, in our opinion, could not fail to raise the standard of legal education in the Province. We do not overlook the fact that the purpose of the Law School is, primarily, to train the stu- dent for the practical work of the profession, while instruction in the Uni- versity has a wider aim, and although this is undoubtedly the case, the courses of study in both are, to a considerable extent, common. Impregsed with this view, we have endeavored to ascertain whether it is shared by the Law Society, but have been unable to obtain any expression of opinion from the Benchers, their determination, apparently, being to delay consideration of the question until it is seen what legislation, if any, follows the making of our report. We are of opinion that the subject is one that should engage the attention of the governing body of the University at an early day. INSTRUCTION IN FORESTRY. The distinctively State character of the University entails upon it obliga- tions in respect of all the great provincial interests in which higher education is an important factor. This is eminently true of instruction in forestry. The value to the country of scientific work in forestry has been already recog- nized upon this continent, but in Canada little has been done to apply system- atically the lessons taught equally by sound economic theory and practical experience. It is surprising that Ontario, with its rich areas of timber, has hitherto failed to set up a school of forestry in its own University for the double purpose of providing technical training for young men in an import- ant branch of science, and of benefiting in the conservation of its forest wealth by their knowledge and skill. It would be difficult to mention a case in which the State's duty and interest go more completely hand in hand. In the United States forestry is now a department of the Federal Government's service and is presided over by the Hon. Gifford Pinchot, with whom the Commission has held a conference. Dr. Pinchot has practically created the For- estry course in Yale University, and from that fact and from the knowledge required by his official position in Washington, he is a competent authority upon the whole question. The Commission also consulted, during its visit in Ithaca, Prof. Fernow, who was the founder of the School of Forestry main- tained for a time by Cornell University, and who is justly esteemed for his knowledge of forestry. There is no doubt that a great work in forestry can be done in this Pro- vince by the University, provided it receives the co-operation and encourage- Xaxvi No. 42 ROYAL COMMISSION RE ment of the Government. The Agricultural College has already provided for instruction in agricultural forestry, which meets the needs of farmers with wood lots to care for and develop. The larger problem is that which touches the immense Crown domain urgently calling for the application there of the newest discoveries in forestry and for the training of skilled men to conduct experiments on a large scale in order to test methods of reforesta- tion and the conservation of valuable timber. It would, in our judgment, be a lamentable error if the direct value of a Forestry Department in the Uni- versity to the Province in its administration of timber areas were not ascer- tained. According to the best sources of information to which we have had access, a single chair of Forestry in the University would effect little. One professor could give theoretical instruction, but he could not produce foresters capable of practicing their profession. For this field work is essential. This requires a staff, not of necessity a large one, but adequate to the scope of the work to be done. The Cornell School of Forestry, dis- continued owing to a dispute with the State of New York, was a complete Uni- versity faculty. The Yale School is also a faculty with three full professor- ships, those of Botany, Civil Engineering and Lumbering, with many instructors who lecture on different kinds of work in the woods. The lab- oratory equipment cost about $20,000. At Yale the students must be grad- uates in Arts. We realize that a beginning may be made without incurr- ing at first all the expenditures of a complete faculty. The University courses in Botany, Chemistry and Engineering could be utilized for the instruction required in these branches and this could be supplemented by a forestry staff of three possessing the special knowledge demanded to carry on both inside and field work. The possession by the Crown of timber lands where practical instruction and experiments could be carried simplifies the situation, and we recommend that the closest co-opera- tion compatible with the end sought should exist between the University authorities and the Department of Lands. It should likewise be kept in view that the private owners of timber lands have a direct interest in the supply of trained men produced by such a school, and in the results of the experiments made. In the United States the National Lumbermen's Associ- ation is subscribing a fund of $150,000 to endow courses of instruction at Yale. Similar action in Canada should be encouraged. We are strongly :) the view that the people of Ontario will endorse the action of the Govern- ment in creating a School of Forestry, by means of which the scientific treatment of our forests can be effectively carried out. on HOUSEHOLD SCIENCE, A handsome benefaction to the University in the shape of a Household Science building has been offered through the generous munificence of Mrs. Massey-Treble of Toronto. We gladly recognize and commend the spirit which has prompted the gift, and trust that the University may feel itself able to provide for the maintenance of the department. In respect to a 1906 xxxvii UNIVERSITY OF TORONTO. a site on University land for this building, we believe it should be convenient of access to the women students of the colleges, and in a position to be worthy of the structure. A site which has been informally suggested is that east of Wycliffe College on the south side of Hoskin avenue. On this point we wish to commend to the University authorities the idea of devoting the beautiful ravine which extends north and south from the Biological building to the boundary of McMaster University, to the purposes of a botanical garden. It seems scarcely fitting that any portion of this fine piece of land should be filled in and used for buildings. Its utilization for the promotion of botanical study would at once be of scientific benefit and provide a scene of great beauty along the eastern boundary of the Univer- sity property. ART SCHOOLS. Thus far in its history the University of Toronto has had little, if any influence in the development of art either in its higher aspects, such as sculpture, painting and mural decoration, or in its relation to our indus- tries. It must be quite clear, we think, that a knowledge of the principles of art is necessary in very many directions, especially where beauty of design is desirable or is demanded by the purchaser. We cannot with safety continue to be dependent on Germany, France, Great Britain and other countries for workers who possess the skill to develop these qualities in our manufactures. We must surely seek in the near future to have our own people possess this skill, in order that we may take advantage of artistic ability where it exists, in practically the same manner as we endeavour to take advantage of the skill of our own people in engineering, physics, or any other branch of human activity. Experience has shown that a school of art even if established primarily for the teaching of design and the artistic use of various materials, must, in teaching the principles of art, make it possible for those who have sufficient ability, and who also have the desire to become painters and sculptors, to secure the necessary teaching. We therefore hope that the time is not far distanit when the University of Toronto will either have its own art school, or have affiliated with it a school conducted on the most advanced principles, and able to inspire and direct other schools of art and industrial design throughout the Province, MUSIC. The University has in affiliation, two Conservatories of Music in Toronto, and one in Hamilton. It also has representatives in local centres where students not attending the Conservatories referred to, may present themselves for examination in the various grades. These local examinations enable students to acquire a limited training in music, and the nature of the work done by the University is satisfactory to that extent. In the University year 1904-5 four hundred and seventy-one students were examined, and three hundred and ninety passed the examination. a xxxviii No. 42 ROYAL COMMISSION RE From no Students attending the Conservatories and desiring to proceed to a degree in music may do so by conforming to the curriculum of the University and passing its examination, but the results of this attempt to secure higher training in music have been very unsatisfactory. There are in the two Con- servatories in Toronto over 2,000 and in Hamilton about 425 students in attendance in the present year, and yet the whole number of degrees con- ferred in music from 1900 to 1905, both inclusive, is seven. this it is clearly apparent that the Conservatories make little or effort to train students for the University degrees, while they do not hesitate to advertise extensively the fact that they are in affiliation with the University. Under the existing system it is therefore doubtful if the University can hope sufficiently to control the teaching of music, or exer- cise the influence which is necessary if the highest results in musical cul- ture are to be obtained. We think the University should look forward to a time when it will have connected with it a school of music over the manage- ment and teaching of which it has complete control, and through the medium of which it may be able greatly to advance the future of music in Canada. RESEARCH IN THE UNIVERSITY. Research has been a feature in the work of various members of the Staff of the University during the last half century, but only in 1897 were insti- tuted the present courses leading to a degree of Doctor of Philosophy and involving research as an essential qualification for the attainment of that degree. Since that date there has been a steady but moderate increase in the number of research students, but it is expected that when all the Facul- ties and departments are organized for such work there will be a rapid increase in the number of students who will devote themselves to investiga- tion for a period sufficiently long to train them fully for a career of research. On the side of the Physical and Natural Sciences the University is equipped for this work and in these departments it is performing this duty with reasonable efficiency. In Experimental Psychology the results are very gratifying and it is satisfactory to know that the research work done in that department is specially recognized abroad. In the departments of Orientals, Philosophy, Political Science, History and Mathematics research courses are available, but in Classics and Modern Languages it has been found impossible to offer such courses owing to the absence from the Library of the required literature. In Medicine and Applied Science a different situation exists. Owing to the want, hitherto experienced of a properly organized hospital, research on the scientific side of Medicine could not be steadily followed, although in some subjects like pathology and physiology very important work has been done. Much more could have been done had the facilities on all sides been extended. That among the young graduates the workers were and are available may be seen from a consideration of the list of those who have 1906 xxxix UNIVERSITY OF TORONTO. gone to other Universities to follow the career denied at home. It is no small satisfaction to the friends of the University that it should have trained the successor of Dr. Osler in the Chair of Medicine in Johns Hopkins Uni- versity, and the successor of Dr. Barker in the Chair of Anatomy in the University of Chicago and that it should have developed the desire for research among not a few of its graduates who worthily represent it in the great Universities of the United States. In Applied Science, though members of the staff have engaged in research work, no attempt has been made to develop this as an educative force. The obstacle has been primarily the want of equipment and the occupation of the whole time of the majority of the staff by class and labora- tory teaching. In Applied Science the field of possible achievement is very large and the results may prove of such value in the industrial life of our country that the State will be justified in the necessary expenditure to put the Faculty on such a footing as would enable it to undertake all lines of research work. In appointments to positions on the teaching staff regard should be had to capacity for research work and the highest interests of the University demand this qualification. THE NEEDS OF THE LIBRARY. The present condition of the University Library is a subject to which we desire to direct special attention. The accommodation for books is inade- quate and in the near future efforts must be made to enlarge it. The num- bers of volumes is now upwards of 84,000, and at the present rate of growth the space for books will be exhausted in three years. By keeping 14,000 volumes in other buildings and in other rooms of the Library, the space in the stack-room is made sufficient for the present. There is no proper accom- modation for maps and charts. Additional office room is much required. In the proper sense there is no reading room for members of the teaching staff. The reading room accommodation for students, which is barely suffi- cient for the Arts students alone, will prove inadequate for the Medical students who are now beginning to use the library in greater numbers from year to year. The lack of ventilation, and the noise attendant upon the pres- ence of so many persons in one large room, render the reading-room an unsuitable place for the purpose of study. To meet this want some of the rooms intended for seminars are employed for study-rooms, but this is a tentative plan and additional accommodation without encroaching upon the space required for other purposes should be provided. The enlargement of the Library is, therefore, one of the necessities of the immediate future, and ought to be undertaken with appreciation of the importance to the Univer- sity of the work carried on there. The Library is especially an object for private benefactions, and we trust it will appeal strongly to those who wish to add something to the educational facilities of the University. xl No. 42 ROYAL COMMISSION RE MUSEUM. One of the necessary features of a great modern University is a properly equipped Museum. From a narrow point of view such a Museum might be effective if it contained only objects necessary for actual teaching purposes, but the greater the number and the wider the nature of the objects contained in a Museum the more useful will it be found for such teaching purposes. Hence in many parts of the world the Museum connected with a University has become the means of exploiting the natural history and the resources of the particular country, and has also become the store-house for objects of every character connected with the history of man and interesting to the student in many branches of science. The University of Toronto has a Museum in connection with its Bio- logical work which, beginning as a mere teaching Museum, is gradually expanding to one devoting itself to natural history. It has been proposed that a wing be added to the new building of the School of Practical Science to be used as a Museum for mineralogical, geological and palaeontological specimens. The University possesses ethnological, anthropological and other collections which cannot be properly displayed, and as a recent development, it has become, and is about to become to a much greater extent, the posses- sor of large collections in connection with the archaeology of Egyptian and other ancient civilizations on the Mediterranean, and of ethnological and anthropological collections from many parts of the world. Victoria also has most valuable collections of archaeological and other objects which will doubtless be placed in such a museum. Indeed, the theological Colleges through their connection with missionaries may be large contributors in the future. These particular collections are not only clearly necessary in the study of the history of man, but unless every effort is made now to secure the material for enlarging and making reasonably perfect such collections we shall undoubtedly find in a few years that the time is past when it is pos- sible conveniently to do so. As to the necessity of a Museum in which may be exhibited the natural history-using the words in their broadest aspect—of Ontario, we do not feel that argument on our part is necessary, further than to say that every year's delay is a misfortune, not only to the education of the students of the University of Toronto, but to the education and material welfare of the people of Ontario generally. It might be well to draw attention to the fact that a public Museum is valuable in proportion to the accuracy of its classification and the informa- tion conveyed to the public by labels and otherwise, and unless the expert ability of professors of the University is used for such classification, the Province will eventually find it necessary to create a separate Museum staff at a very great and, in our opinion, quite unnecessary expense. We therefore recommend that a site be selected in the University grounds adjacent to a public thoroughfare and sufficient in area to permit of extending the buildings in the distant future, that a Museum on a rea- 1906 xli UNIVERSITY OF TORONTO. a sonable scale be planned, and in such a manner as to be built in units, and that a sufficient number of units to accommodate conveniently the Museum material now owned by the University of Toronto be built as early as pos- sible. METEOROLOGICAL OBSERVATORY. About the year 1840, the University set apart for the use and occupa- tion of the Crown two and one-half acres of the University land as a site for a magnetic and meteorological Observatory for scientific purposes. By the instrument setting apart the land it was provided that if at any time the Crown should cease to use or occupy it for the purposes mentioned, the land should revert to the University. The land has been in the occupation of the Crown ever since although several years ago the magnetic work of the observatory was transferred to Agincourt, and the observatory has since been used for meteorological pur- poses only. In recent years the Trustees of the University finding that the land was needed for building upon and believing that the occupation of it for observa- tory purposes also seriously interfered with the means of access to the main University building from College street, entered into negotiations with the Government of Canada for the purpose of obtaining its assent to the removal of the observatory to another site on the University land. These negotiations resulted in an agreement being reached by which the Crown upon certain conditions undertook to give up possession of the present site and to accept in lieu of it another site on the University land. One of these conditions was that the University should provide the new site free of cost to the Government. That has been done and the Crown has taken and is now in possession of the new site. All the other conditions have also been complied with by the University, and the time for posses- sion of the present site being given up will arrive in a few weeks. Rumours have from time to time been current that it is the intention of the Government of Canada to transfer the principal work that is now being done at the observatory here to Ottawa. Against this rumoured transfer remonstrances have been made by the municipal authorities of Toronto, by the Board of Trade and by those inter- ested in shipping and lake navigation as well as by the Trustees of the Uni- versity. Believing as we do that such a transfer as is rumoured to be in contem- plation would not be in the public interest, we would strongly urge that prompt communication be had with the Dominion Government with a view to having an appropriation for the erection of a new observatory on the site that has been provided by the University made during the present ses- sion of the Parliament of Canada and the entire work now being carried on at the observatory being done in the new building. xlii No. 42 ROYAL COMMISSION RE THE AGRICULTURAL COLLEGE. We have considered the relation of the University to the Provincial Agricultural College. This department of the State educational system is, in our opinion, of great value. Thirty years ago but little was being done in the way of providing higher educational facilities for those intending to take up agriculture as their life work. Stimulated by the successful working out of agricultural problems in Europe, notably in Germany; public men in Canada and the United States came to the conclusion that the success of American agriculture demanded colleges for the special training of the future farmers, and laboratories and stations for the investigation of agricultural methods. In Ontario a Professorship in Agriculture had already been established in the University of Toronto, and a Veterinary School was being conducted by the Agriculture and Arts Association. The first Commissioner of Agriculture for Ontario, Hon. John Carling, announced in 1869 his inten- tion of inquiring into the needs of this Province as to an Agricultural Col- lege and an Experimental Farm. He appointed Rev. W. F. Clarke, Editor of "The Ontario Farmer,"' to inspect such departments and institutions in the United States as were making a specialty of agricultural research and education, and to prepare a report. This report, which appeared in 1870, was based on the work carried on at the Massachusetts Agricultural College and the Michigan Agricultural College, and recommended that a college similar to the latter be established in Ontario. The college was established ultimately in the County of Wellington, and the work of instruction begun in 1874. The Ontario Agricultural College has from the first been maintained as a purely agricultural college, and, after passing through a long period of indifference and being subjected to keen criticism, has now established itself as one of the most successful agricultural colleges in America. A comparison of the number of students during two periods will show conclus- ively what a change has been effected in the institution. 1885..... 1886... 1887... 1888...... 1889... 1890... No. of Students. 175 149 110 131 134 146 1900.. 1901.... 1902...... 1903.. 1904. 1905...... No. of Students. 342 359 768 728 833 1,004 The period of depression in the fortunes of the college apparently reached its maximum in 1887. The revival appears to have come from within the College itself. The President and staff at that time inaugurated in Ontario a system of Farmers' Institutes. They felt that if the farmers would not come to the College or send their sons to the College, they must go out to the 1906 xliii UNIVERSITY OF TORONTO. farmers. Through these Institutes the farmers become acquainted with the teachers of the College and their work, and recognizing apparently for the first time that it was really labouring in the true interest of the farmers, gave their response in increasing attendance. Once the indifference or antipathy of the farmers was overcome the institution began to grow along many lines and gradually to assume the large proportions which it has now reached. The Legislature readily met the increasing demands for the equipment of laboratories in various lines of scientific research, and for additional instruction. From the first the College has provided a two years' course and has granted diplomas to students successfully completing this course. In 1887 a third year course was added and affiliation with the University of Toronto took place. A special convocation was held on October 1st, 1888, and the degree of Bachelor of the Science of Agriculture was con- ferred upon five students. One member of this class is now President of the College, one is Professor of Field Husbandry and Director of Experiments, and a third is Director of the Agricultural Experiment Sta- tion of Texas. The University graduation class of 1905 numbered 29. During the eighteen years, 1888 to 1905, the degree of B.S.A. has been conferred by the University of Toronto upon 192 young men who have completed first their two years' course for a diploma and then the subsequent course. The course was further extended in 1901 by adding a fourth year, so that now the degree is based upon the passing of a University matriculation examination followed by a four years' course of instruction. The following is a statement of the number of degrees conferred by the University in agriculture : a 5 எ 0 0 5 1888...... 1889... 1890. 1891.... 1892.... 1893... 1894.. 1895... 1896...... 5 10 7 12 7 9 11 1897...... 1898... 1899 1900.. 1901.. 1902. 1903.... 1904.... 1995 7 11 9 18 1 8 16 21 29 Total 192 Several members of the Commission paid a visit to the College and made inquiry into all the workings of the institution. The College is well equipped and satisfactorily conducied. Zeal and enthusiasm are shown by the profes- sors, and there is a feeling of harmony and loyalty to the institution in all departments. We commend to the Legislature the great importance of continuing the liberal treatment of this institution. It has done much for this Province; it is now doing a great work, but the demands are increasing and we feel quite sure that the importance of enlarging its usefulness will not be neglected. Its value to the Province of Ontario can hardly be overestimated. xliv No. 42 ROYAL COMMISSION RE We have considered the relatien of the College to the University, and find it to have been mutually satisfactory and beneficial. . There does not appear to be need of change in this respect. The President of the College is a member of the Senate of the University. The Senate approves ef the course of study, appoints the examiners, and confers the degrees. We do not believe the University should interfere with or be responsible for the management and direction of the College, but owing to the fact that the agri- cultural community is not likely to have representation through any of the other members appointed to the Senate, we think there might be an advantage in having, in addition to the President, two members elected by the graduates in agriculture who would represent the agricultural side of University edu- cation. We would also suggest that: 1. An advisory board should be appointed to assist the Minister of Agri- culture in the direction of the College work, to be composed of the following persons : The Deputy Minister of Agriculture (Chairman), the President of the College, three graduates or associates of the College who shall be resident in Ontario and not members of the staff, and, if thought desirable, two representative farmers not graduates of the College. This board should be purely advisory and should not in any way relieve the Minister of his direct control and responsibility. This board should take the place of the advis- ory board provided for by statute in 1887 when the College was not under the charge of a practical farmer. 2. In the interests both of the College and the University an annual interchange of lectures might be made. 3. If the advisory board be appointed we recommend that, in addition to the President of the College, one of the members be selected by the Minister to sit in the Senate of the University. A STATE VETERINARY COLLEGE. We have also considered another important department in which the Uni- versity can increase its usefulness to the agricultural population of the Pro- vince. The following paragraph, taken from the report of the Board of Agri- culture of Upper Canada to the Minister of Agriculture for the year 1864, contains the record of the beginning of the special teaching of veterinary science in Ontario. The work was originated by the board which was the predecessor of the present Department of Agriculture, and was carried on in close relationship to the University. The “efficient veterinary surgeon' refered to was Dr. Andrew Smith, the present Principal of the Ontario Vet- erinary College, who has occupied the position for over forty years. "In the winter of 1861-2, a course of veterinary and agricultural lectures was instituted under the auspices of the board, with the advantage of the valuable and gratuitous aid of several of the distinguished professors of Uni- versity College, Toronto. The first winter the arrangements were incomplete and the attendance was small. The progress made by several of the students 1906 xlv UNIVERSITY OF TORONTO. was, nevertheless, very considerable in view. of the limited time and means employed. In the winter of 1862-3 the arrangements were more extended and the accommodation more adequate. The course consisted of lectures on the Anatomy and Diseases of Domestic Animals, the Science and Practice of Agriculture, Agricultural Chemistry, Entomology, Botany, Geology, ete. This course extended over six weeks and was attended by about thirty young men from different parts of the Province, most of them either actually engaged in agricultural pursuits or shortly about to do so. It is not too much to say that the greater number of these young men, at the close of the ses- sion, gave evidence of having made a highly creditable degree of progress in attaining a knowledge of the studies brought before them, several of them indeed to an extent deserving of special notice; and the result of the experi- ment was so far in every respect satisfactory and encouraging. Particular attention was paid to the veterinary department of the course. The board is strongly impressed with the importance to the agricultural interests of the Province, of having persons resident in the different districts possessed of some practical knowledge of the true nature and proper treatment of the dis- eases of the more valuable domestic animals, in which description of property much of the wealth of the farmer consists. Under this view the board made arrangements with a very efficient veterinary surgeon, a licentiate of the Edinburgh Veterinary College, to come out from Scotland for the purpose of instituting the series of lectures above referred to. The primary object sought in originating these lectures was to create an interest in the subjects and to give the young men attending them so much knowledge of the proper method of study that they would be enabled to follow up their studies to advantage at home. The design was also, further, ultimately to establish, if found prac- ticable, a regular veterinary school, at which a thorough knowledge of the profession can be obtained.” The Board of Agriculture was succeeded by the Agriculture and Arts Association, and in 1871 the Council of the Association was by statute given power as follows: "The Council may establish a Veterinary College for the instruction of pupils, by competent and approved teachers, in the science and prac- tice of the veterinary art, and may pass by-laws and adopt measures for the examination of such pupils in anatomy, physiology, materia medica, therapeutics, chemistry, and as to the breeding of domesti- cated animals; and upon proof to the satisfaction of the Council that such pupils possess the requisite qualifications, may grant diplomas certifying that they are competent to practice as veterinary sur- 9 geons." The diplomas of the College were controlled and issued by the Agricul- ture and Arts Association, until the first day of January, 1896, when the Association by statute ceased to exist. On the 16th of April, 1895, there was passed an Act respecting veterinary surgeons in which the Veterinary College established by the Agriculture and Arts Association was continued, and the President of the Association was authorized to sign the diplomas until the xlvi No. 42 ROYAL COMMISSION RE first day of April, 1896. This was further extended to the first day of Ayril, 1897. On the 19th December, 1896, a charter was issued incorporating the Ontario Veterinary College, Limited, and in the following year, 1897, affili- ation took place with the University of Toronto. The Board of Agriculture and the Agriculture and Arts Association were organizations which to a certain extent represented the Department of Agriculture. From 1862 to 1896, there- fore, the issuing of diplomas in veterinary science was under direct Govern- ment control, and for the past ten years the work has been in the hands of a private corporation having special statutory recognition. The course of instruction covers two years and those holding the diploma of the College are by statute permitted to style themselves veterinary surgeons. It will be seen that the College has not as yet provided courses that the University would recognize by granting a degree. The only statutory enact- ment at present in regard to veterinarians is that only those holding diplomas or proper certificates from the former Agricultural and Arts Association, the present Ontario Veterinary College, or "some duly authorized veterinary col- lege” are permitted to append to their names the term veterinary surgeon. There is no restriction as to performing veterinary work, provided the title is carefully avoided. For many years the Ontario Veterinary College was the most popular institution of its kind in America. It was a pioneer in the work. Of recent years the large universities in the United States have been developing special courses in veterinary science, providing courses of three years and in some cases of four years' duration. We believe that the Province of Ontario should provide courses in veterinary science as extensive and as thorough as any that may be provided in the United States. As it is, Ontario students desiring to equip themselves beyond the two years' course are compelled to take further work in one of the United States colleges after completing their course here. The owners of the Ontario Veterinary College have not seen fit, as yet, to take advantage of their affiliation with the University of Toronto to pro- vide a course leading to a degree. The livestock interests of Ontario are assuming immense value, and the success of our agriculture depends in no small degree upon the health of our horses, cattle, sheep and swine. Vet- erinary science in Ontario to-day stands where the Agricultural College did. in 1887. We believe the time has come when an expansion should take place, and when a three years' course of instruction should be available. Further, we believe that this work should, like the Agricultural College, be under the direction of the Government of the Province. In view of the fact that there is invested no less than $163,000,000, in live stock on the farms of Ontario, in addition to the valuable horses owned in our cities and towns, we feel warranted in recommending that the Gov- ernment of the Province should offer to do for veterinary science what has been done for general agricultural science. After careful consideration of the question, we beg to make the follow- ing recommendations : 1906 xlvii UNIVERSITY OF TORONTO. 1. That the University of Toronto establish a degree in veterinary science, covering a course as thorough and advanced as those pro- vided in the leading universities of the United States. 2. That the Government of the Province of Ontario establish a veterin- ary college that will provide courses for the conferring of diplomas, and also for the degree in veterinary science that the University of Toronto will confer. 3. That the Provincial Government, in order to avoid having a rival institution, make arrangements to take over from the owners the Ontario Veterinary College, if satisfactory terms can be arranged. 4. That the Provincial Government conduct the Veterinary College as a Provincial educational institution along lines similar to those fol- lowed in connection with the Ontario Agricultural College. 5. That the College be placed under the Minister of Agriculture, and that the Minister have an advisory board to assist him in the administra- tion of same. We would recommend that this advisory board be composed of the following persons: The Deputy Minister of Agri- culture; the Principal of the Veterinary College; the Professor of Animal Husbandry of the Agricultural College; two representativer of the live stock interests of the Province; and two practising veter- inary surgeons. 6. That the course be expanded so as to bring it up, at least, to the re- quirements of similar veterinary colleges now in existence in the United States, and that diplomas be conferred only after a three years' course. 7. That it be affiliated with the University of Toronto, and, at an early date, be provided with a building in close proximity to the Univer- sity of Toronto, so as to enable the students to take advantage of University lectures in such subjects as may be found practicable in connection with the veterinary course. THE COLLEGE SYSTEM. The University of Toronto is made up of many diverse elements. There are various faculties: Arts, Medicine, Law and Applied Science; and in the Faculty of Arts are various colleges: University College, Victoria College, Trinity College; and three purely theological colleges: Knox, Wycliffe and St. Michael's. The organization of the University is not exactly parallel to that of either an American or a British University. Through federation we have developed a form of organization that is unique. The State pro- vides a complete system of education in Arts in the University of Toronto and University College. The subjects taught in University College are taught also in the denominational Colleges of Victoria and Trinity. All the stu- dents who take lectures in the University subjects must be enrolled in one of these three Colleges. We believe that the University has thus, by apparent chance, hit upon a system which, if properly and loyally worked, provides a xiviii No. 42 ROYAL COMMISSION RE combination of strong personal influence on students with the broad outlook and widened sympathies that come from membership in a great University. The Colleges will maintain the importance of liberal culture in the face of commercial and industrial development, and the growth of scientific activity. The Colleges will be able to bring the strongest influences to bear upon their own comparatively limited number of students, and to foster a common life among them free at once from the narrowness of the small university, and the lack of social union of a huge undivided university. In the colleges of the United States efforts are now being made to break up the great aggregation of undergraduates in Arts into smaller groups which may be more easily handled for disciplinary purposes, and for more efficient direction of work. The divisions proposed seem more or less artificial; at best they are lateral, such as class organizations. In our approximation to a college system we have at hand a more excellent method of subdivision by which men of all years and all courses are bound together by a tie of membership in a common college, and the teachers of the various colleges are enabled to come into closer personal touch with the men under their charge. The combination of a State college and denominational colleges provides variety of ideal and spirit, and avoids the dead level of uniformity that might ensue in one large undivided body, and furnishes to each member the needful stimulus of healthy rivalry. Out of a situation that to many seemed fraught only with danger, we may hope to see emerge a type of institution that shall combine college spirit and university spirit, in which each shall work for all and all for each. Confidence, not suspicion, must be the basis of such a composite institution. The State supplies to its youth a complete system of higher education; the denominational colleges avail themselves of the State's pro- vision for scientific training, and add to it their own contribution of the humanities, with such a religious or denominational atmosphere as seems most desirable to themselves. INTERCHANGE OF LECTURES. We have recorded the fact that there exists at the University a system of interchange of lectures, under which professors of one College lecture in another, or students of one attend lectures in the other, credit being given for such attendance in the respective College requirements for the courses con- cerned. At the present time there is no provision in law under which such interchange can be properly arranged. We have thought it well, therefore, to include in the draft University Bill which accompanies this report a clause under which such interchange may become legal. That the Col- leges should have the opportunity to make such arrangements in particular cases seems wise, though the power should be very carefully exercised and sbould be subject to revision by the Board, inasmuch as interchange is sometimes open to criticism as affording an opportunity for the introduc- tion of a system that might tend to reduce competition and bring lectures to a dead level. 1906 xlix UNIVERSITY OF TORONTO. COLLEGE RESIDENCES. To make a college system really effective, residences for the students are highly desirable. In days gone by University College had its own residence; to-day Trinity has a residence for its men and another for its women stu- dents, and University College and Victoria have provided residences for their undergraduate women. We hope soon to see ample residential accommoda- tion provided for the members of University College, and for undergraduates of the University in all faculties. Such residences, whether College or Uni- versity, if under academic control, combined with a reasonable amount of self- government on the part of the men, are much more than boarding houses; they are places wherein students may be profoundly influenced by contact with one another, and with their instructors. The value of the residential system has been abundantly demonstrated both in the Old World and the New. We wish to express our sincere appreciation of the efforts of those friends of the University of Toronto who recently formed a separate trust for the erection of residences for University students in the University grounds, and have secured large sums of money for that purpose. They are ready, we understand, to hand over their trust in due time to such a new governing board as that we have suggested. This course is desirable as we believe that all academic and disciplinary authority on the University grounds, and over all University students, should be vested in the University. PROFESSORS AND STUDENTS. Recognizing the advisability of the relations between the staff and the students being as close and friendly as possible, and at the same time keeping in view the fact that the large number of students in attendance at the Uni- versity makes it difficult to secure such relations, we are of the opinion that it would be well to adopt a plan similar to that followed in other universities, under which members of the teaching staff, having volunteered to act as advisers, have assigned to them a definite number of students. Each under- graduate is informed of his adviser and feels that there is someone in authority who takes an interest in his welfare. The advisers frequently give counsel on matters particularly relating to the student's work as well as to his general development, and exercise a sympathetic interest in the progress of those students who have been assigned to them. Such a system would do much to prevent students who are not fitted for university work from con- tinuing therein and thus wasting their time. Under proper advice they could be diverted into a more suitable channel of activity, with benefit to the individual, the University and the State. PHYSICAL WELFARE OF STUDENTS. Referring to the physical development of students, the care of their bodies and their athletic activities, we are of the opinion that there should be appointed at an early date a Physical Director, who should be a graduate in 4 U. c. a 1 No. 42 ROYAL COMMISSION RE Medicine and whose duty it would be to examine all students who desire to avail themselves of such examination and to prescribe proper exercise for each. Such a system of examination and direction properly carried out would result in improved physical strength and constitutional vigour and would largely assist in increasing mental vitality. Under such guidance over-indulgence in athletics could be checked and the error of sacrificing bodily health and strength in the pursuit of knowledge might thus also be avoided, while the proper development of all powers, physical and mental, should result in gain both to the individual and to the State. In this con- nection it is in place to remark that the University authorities should exer- cise such supervision over athletics as might tend to prevent their undue interference with studies and to remind the students that they are to be regarded as but means to the great end of self-development. DISCIPLINE. In matters of discipline we are of the opinion that as far as possible each College and Faculty should be responsible for its own students. To deal with all cases of discipline which fall outside the jurisdiction of colleges or faculties we suggest that the Caput should have disciplinary jurisdiction. The Caput should also act in all cases of inter-college or inter-faculty dis- cipline and where any doubt arises as to the proper disciplinary authority the Caput should have final power to resolve the doubt. A conflict of juris- diction would in this way be speedily removed. A STUDENTS' COMMITTEE. We would recommend that in matters affecting the general interest of the student body, there should be a Students' Committee, recognized as officially representing the undergraduates as a whole. Such a committee would be a proper means of communication between the authorities and the students, and having a right to speak for their fellows, could come to an understanding on questions which might arise before they became serious. The composition of such a committee is a question which it is properly the duty of the Board to determine. We would suggest, however, that as far as possible membership in it should be ex-officio, that is, that undergraduates holding office in organized student associations should be brought together to form the general committee of students. BUREAU OF SELF-SUPPORT FOR THE STUDENTS. In some of the large universities in the United States there has in recent years been established a bureau of self-help for students. Many undergrad- uates must support themselves in whole or in part during their college course. They work in the summer, and, as far as they can, they try to earn further sums during the months of their actual college course. It has been 1906 li UNIVERSITY OF TORONTO. success. found most helpful to establish by university authority a regular employ- ment bureau for college men. Columbia and Yale have done this with great The sporadic and necessarily limited efforts of the students are systematized and employers are more easily brought into touch with those seeking employment. Some modification of this system, adapted to our local conditions, would prove, we believe, of real assistance to the students in the various faculties of the University. A DEPARTMENT OF PEDAGOGY. The time has come, in our opinion, for the creation of a department of Pedagogy. A course in the history, principles and practice of education should form part of the curriculum. The University examines for the degree of Bachelor of Pedagogy and Doctor of Pedagogy, but has hitherto done no teaching Departments of Education have been established in many universities, and we have had opportunity for special inquiry into the work of these departments at Columbia University and the University of Chicago. The work is best performed where the theory and practice can be made to supplement each another, and it appears to us that the Provincial University should conduct the department on these lines. For this purpose the Uni- versity should have power to co-operate with the Board of Education of Toronto in securing the use or control of a school or schools for carrying on the practice work. We do not suggest the exact means by which such an arrangement shall be effected. The proposal to erect a new High School in the northern part of the city near the University may afford the desired opportunity. The duty of the University in connection with the teaching body of our primary and secondary schools is one that ought to be recognized. We believe that the question can best be dealt with by the new governing board and that financial provision for the creation of a pedagogical course should be made. TENURE OF APPOINTMENT. The tenure of appointment is an important element in determining the scale of professorial remuneration, and, in maintaining the general efficiency of the teaching staff. In most of the universities in the United States all appointments under the rank of professorships are made for a limited period, during which the instructor is on probation. In some even full professors are appointed for a limited period, and are then re-appointed without limita- tion, during the pleasure of the trustees. The probationary method gra- dually sifts out those who are of less than first rank, and makes it possible to select for more permanent appointment such men as have given evidence of their fitness. To members of the staff thus appointed all reasonable secur- ity of tenure is given. It is felt to be wiser to endure a possible weakening of teaching power in a professor than to run the risk of losing first rate men from the University by introducing an element of uncertainty into the tenure lii No. 42 ROYAL COMMISSION RE of the highest academic positions. The President of a great University in the United States declares that by reason of probationary appointments the necessity of removing a professor practically does not arise. When, how- ever, after all possible precautions are taken, and, subsequently, proved in- capacity or misconduct is exhibited, the governing body of the University should be quite free to dismiss. The University must not suffer for the sake of one man. We have felt that the best course to be adopted in the Univer- sity is to make the tenure of office to be, unless otherwise provided, during the pleasure of the Board. We hope it will be the policy of the Board to make all subordinate appointments, i.e., those below the rank of professor, and, possibly, associate professor, on the probationary method, and we doubt not that in carrying out their policy they will give full weight to the complementary elements of security of tenure and efficiency of service. THE REMUNERATION OF PROFESSORS. The general scale of salary for professors and other members of the teach- ing staff should be re-considered. It was adopted many years ago, when the cost of living was much less, and when the rate of remuneration fixed bore a fair proportion to the salaries paid to persons in other walks of life. The multiplication of pursuits in which men of learning and scientific attain- ments can earn large incomes has enhanced the difficulty of securing the best men for University teachers. Although larger salaries ought to be paid, they should be paid according to a different system than that now in vogue. The present system provides for automatic increases, according to the number of years of service, and establishes a uniform rate, regardless of the relative importance of the positions to be filled, and ignoring the special qualifications required in some cases. This system, in our opinion, is antiquated and objectionable. It is not followed in some of the principal universities else- where. There hen vacancies occur, the authorities look over the whole field at home and abroad and have power to offer such salaries as will attract the right men. We believe that a revision of the scale of remunera- ion should be undertaken as soon as possible, and that it should be based, first, upon the principle of recognizing the relative importance of the various professorships; and, secondly, that increases should depend upon merit, and particularly upon the capacity for productive work which is exhibited. PROPERTY AND BUILDINGS. The available ground at the disposal of the University for additional buildings is decidedly limited. Few Universities established in large cities have been provided with sufficient land for future expansion. The Univer- sity of Toronto is now giving promise of growth beyond the most sanguine expectations of its founders, and for that development all possible provision should be made. The policy of the University should continue to be to acquire as much land as possible in the vicinity of Queen's Park. We 1906 liii UNIVERSITY OF TORONTO. believe that the present unallotted University property and the park lands adjoining will be none too large for the series of collegiate buildings which the growth of the University and the extension of the residential system will, in the not distant future, demand. In the erection of new buildings for University teaching reasonable re- gard should be had to the convenience of the federated Arts Colleges. The students of such colleges might be virtually deprived of the opportunity of taking some courses by reason of the difficulty of passing from their college to a distant University lecture-room or laboratory. The original University building set a standard of architectural excel- lence by which all subsequent academic edifices might well be tested. Lack of means seems to have made it impossible to imitate the beauty and fitness of the main building; but an earnest effort should be made to combine archi- tectural excellence with educational service in all future additions to the University equipment. It is not easy to exaggerate the influence of such architecture on the minds of those who daily behold it, nor is it easy to over- emphasize the gain to the Province of having a group of stately academic buildings of which all citizens might be proud. As the University is about to enter upon a fresh chapter of its development, we think it most desirable that the Board should consider some comprehensive plan for the disposition and use of all the property at present in its hands, or which may soon be added. Further structures, whether residences, lectures rooms, labora- tories or administration buildings, could then be erected as part of one gen- eral scheme, wherein each bears a real relation of fitness and utility to the other buildings on the University grounds. In this connection we recommend the creation of an office found in some of the American universities, that of a Superintendent of Buildings and Grounds, and the appointment of a suitable person who would exercise supervision over the property. FINANCIAL SUPPORT OF THE UNIVERSITY. The Commissioners would be seriously remiss in their duty if they failed to deal courageously with the vital question of financial support. A well-equipped university under modern conditions is necessarily a costly institution. The privately-endowed univisities both in Canada and the United States have drawn millions from public-spirited benefactors. They could not have expanded as they have done if money had not been freely placed at their disposal. Training in so many different branches of science, costly laboratory equipment, and a larger staff, call for a greatly increased expenditure. State institutions, like the University of Toronto, depend mainly upon the support of legislative bodies. In the United States the response to the claims of higher education has been very liberal indeed. In newer States like Wisconsin, Minnesota and Michigan, which are not super- ior to Ontario in wealth and resources, the votes for the Universities have liv No. 42 ROYAL COMMISSION RE we no a been on a scale which indicates that their wants have only to be known to be freely supplied. Not only is the annual income placed on a secure basis, but sums for capital expenditure on new buildings and new teaching depart- ments are readily granted. The two distinct objects of university educa- tion are mental culture and practical utility. In recent years the latter has steadily gained upon the former owing to the utilitarian character of the age, and the increased expenditures have doubtless been chiefly for the development of this branch of instruction. In Ontario, as else- where, the extra sums voted for University purposes have gone into new buildings and increased staff for the teaching of the applied sciences. The avowed aim has been to train the youth of the country for the varied occupa- tions presented by material development. With this have desire to quarrel, regarding it in fact as the natural and justifiable course to pursue in a practical age and country. At the same time we wish to point out the value to the nation of maintaining at a high degree of efficiency the training in Arts. Without such training a university education would cease to possess its true significance. In no respect should this department of university work be permitted to fall behind. It is sometimes a just cause of complaint that the system of options is so constructed that university degrees are conferred upon men who are not, in the proper sense, university men at all. Against this danger, observable elsewhere and perhaps to some extent here, the authorities of the University should be on their guard. The rela- tion of all the science courses to the courses in Arts should be thoroughly considered and defined. The modern university must not part with the noble ideals of cultivated and scholarly tastes, of high thinking of the love of learning for its own sake, which are among the most valuable inheritances which have come down to us from the past. In the case of the University of Toronto we hope that if thorough teaching in the humanities requires more money the expenditure will be unhesitatingly incurred with every confidence that public opinion will approve. A survey of the ever-widening field of work before the University brings us to the question of the income needed for present and future requirements. It is clear that the University cannot be allowed to stand still. Its necessary expansion must be taken into account and we feel sure that the Province desires its University to receive adequate support. A financial statement laid before the Commissioners by those authorized to speak for the Univer- sity shows that a moderate estimate of the amount required from the Legis- lature during the next three years is as follows: For 1905-6 $125,432 1906-7 168,263 184,378 This does not provide for the annual cost of the School of Science, the expenditures upon which, now voted separately, should, if the two institutions are united, be added to the sums required for the University. According to an estimate of the requirements of the School of Science during the next three years, the net amounts are: 66 1907-8 1906 lv UNIVERSITY OF TORONTO. 66 For 1905 $39,663 1906 56,255 1907 62,930 In these estimates we find no provision for capital expenditures or exceptional outlays for maintenance but simply the sums needed to meet natural expansion on a moderate basis. For the two institutions, therefore, the Legislature would be called upon to vote during the next three years the following amounts: For 1905-6 $165,095 1906-7 224,518 1907-8 247,308 With these figures before us, and after a careful inquiry into the addi- tional expenditures likely to be required in the immediate future if the University is to be placed upon a proper financial basis, we have considered the whole question of income. In respect to additional expenditures, not inciuded in the estimates given above, we recommend that sums sufficient for the initial support of depart- ments of Forestry, Pedagogy, and Household Science, and for the cost of maintaining chairs for scientific subjects in Medicine should be provided. It is not easy to state the precise additional amount which these would require, but a sum in the neighbourhood of $35,000 or $40,000 is the small- est estimate that could safely be made. In determining the question of income, the amount and the method of providing it are both of moment. We believe that some means of fixing the income upon a definite basis should be found. It has been proposed that a certain percentage of some item of the Provincial revenue should be allotted to the University, and that the sum that this percentage yielded from year to year would form the amount to be voted annually by the Legislature. It must be borne in mind that the financial needs of the University will grow greater from year to year both because of the increase of the popula- tion of Ontario and the growth of knowledge in the world at large. The items of Provincial revenue, therefore, from which that portion of the income furnished by the state is to come, must also be one which will grow greater from year to year in at least as large a ratio as that of the increase in population. For this purpose the revenue from succession duties has been suggested. It is true that this is a tax which has aroused much opposition and which may be subject to change in the future, but it has been selected because it is at present a tax which grows in some relation to the growth of the Province and therefore to the growth of the University requirements. , The Provincial revenue from this source during the past six years has been as follows: 1900 $228,360 1901 376,661 1902 236,169 1903 386,948 1904 458,699 1905 684,143 a Ivi No. 42 ROYAL COMMISSION RE or an average for the six years of $395,163. As this particular source of revenue is supposed to be allocated under the Act to the discharge of certain Provincial expenditures, we have thought that the University income might be fixed by statute at a sum equal to a certain percentage of the revenue from succession duties. In order that this system might not introduce an element of inconvenient fluctuation, seeing that the revenue from succession duties varies considerably from year to year, we recommend that the percent- age be calculated upon the average of three years' receipts. We believe that the income under this system or any other that may be selected, ought not to be less than $275,000, at the inception. In order to show that the figures suggested by this report are not only not extravagent but are in fact very moderate, we quote an extract from the report of the Board of Curators of the University of Missouri to the General Assembly of that State, made in January, 1902. This portion of the report was made for the purpose of inducing Missouri to help more liberally its State University, but the biennial income of the University as shown by its report was $588,339, and of this $226,126 was derived from the Collateral Inheritance Tax of the State, a fund similar to our Succession Duties. The following is the extract: “1. University of Michigan (not including the Schools of Mines or the Agricultural College), 4 mill (2ị cents on the $100) of property. Income from all sources in a Biennial period about $1,000,000. 2. University of Wisconsin, about 1 mill (24 cents a $100), for mainten- ance and a large tax additional for special purposes. Its income from all sources in a Biennial period nearly $800.000. 3. University of Iowa (not including the Agricultural College), about 1-5 mill a year (.02 on the $100). A similar tax in Missouri would yield for the Biennial period $540,000. 4. University of Nebraska, 2-3 mill (about 6 2-3 cents a $100). This is the largest tax levied in any state for the maintenance of its University. In Missouri it would yield a revenue in the Biennial period of $1,600,000. 5. University of California (which has besides an endowment of more than five millions), 3-20 mill (1 1-2 cents a $100). Its income from all sources in a Biennial period is not short of $1,000,000. 6. University of Minnesota for maintenance alone (not including build- ings), 3-20 mill (1 1-2 cents a $100). The Biennial income is about $700,- 000. 7. Ohio University, 1-10 mill (1 cent a $100). Income from all sources in a Biennial period about $600,000. 8. University of Oklahoma, 1-2 mill (5 cents a $100. In Missouri this would yield $1,200,000 in a Biennial period. 9. University of Illinois asks of the Legislature in the coming Biennial period $900,000. I have no doubt that the expectation of the University will be fulfilled. They nearly always are fulfilled in that State. 10. The University of Kansas asks in the present Biennial period for 1906 lvii UNIVERSITY OF TORONTO. $450,000 which it will probably receive. Neither in population nor wealth can Kansas be compared with the great commonwealth of Missouri. Will Missouri give less money to her University? 11. Washington University in St. Louis has received in the last Bien- nial period about three millions of dollars. It had already received in late years a million and a half. When the Institution begins to feel the force of this immense sum ($4,500,000) the State University may no longer hold the leadership of education in Missouri. It is beyond controversy that when her new buildings are completed Washington University will be ahead of the State University in buildings and equipment. It will also be ahead in annual income apart from tuition. In addition to this it has a very large. revenue from tuition fees. The great commonwealth of Missouri should not allow a private institution in one of her cities to excel the University of the entire commonwealth. 12. Departing from State Universities let us call attention to the fact that we must all compete in some measure with the University of Chicago, whose income exceeds $600,000 à year, or $1,200,000 each Biennial period.” As these figures are all given for a biennial period, one-half will in each case afford the proper comparison with Ontario. We should draw atten- tion to the fact that these Universities are also afforded considerable finan- cial aid by the Federal Government. ENDOWMENT IN LAND. Throughout North America little in the financial history of universities has been more noticeable than the good effect of large grants of wild land. The original grant to the University of Toronto has borne abundant fruit, has, indeerl, made the present state of higher education in Ontario possible. By the settlement of the Provincial boundary we have obtained control of what is called New Ontario. It does not, therefore; seem unreasonable to express the hope that out of this enormous area at least a million acres will be set aside for the University and University College. TRINITY COLLEGE. The relation of Trinity College to the University and its precise posi- tion in the federal system, have entailed special inquiry and considera- tion. The Act of 1901 provided for the entry of Trinity College into feder- ation. Trinity, like Victoria, was to suspend its degree-conferring powers except in theology, and its removal to a site near the Queen's Park on the University land was contemplated, provision for the delivery of University lectures at Trinity College in the meantime being made. The Act empow- ered the Board of Trustees of the University to make an agreement with the governing body of Trinity College for its federation on these terms, author- ity being also given the trustees to agree to such other terms, subject to the lviii No. 42 ROYAL COMMISSION RE assent of the Liuetenant-Governor-in-Council as might be deemed best in addition to or in lieu of the provisions of the Act. This agreement was to possess, and now possesses the force of a statute. When it was framed in 1903, the policy contemplated by the Act, namely, the removal of Trinity to the Queen's Park, was changed, and the conclusion reached was that this policy should be abandoned and that Trinity should continue to occupy its present buildings, provision being made for, amongst other things, the permanent duplication there of lectures, the expense of which was to be borne by the Province, and for the setting aside of land on which Trinity might erect a building for the use of its students while attending lectures at the University. The basis of federation then reached is not, in the opinion of the Com- mission, a satisfactory one, and we have earnestly sought some means by which the whole situation can be relieved and simplified. To that end we invited the Provost and other gentlemen connected with and who are deeply interested in Trinity to discuss informally with us the possibility of an arrangement being come to by which Trinity would, as contemplated by the Act of 1901, remove to the Queen's Park and the neces- sity for the duplication of lectures be avoided. open to Several conferences with the Provost and members of the corporation and of the Board of Endowment of Trinity, for the informal discussion of the subject have been held, but unfortunately it has not been possible to arrive at a basis of agreement acceptable to Trinity, and one that we can recommend for adoption by the University. The removal of Trinity from its present seat to the University ground would entail a large expenditure for the erection of new buildings and Trin- ity is not unnaturally unwilling to provide for this expenditure by bringing present sale, its valuable property on Queen Street West, and it is serious doubt whether the proceeds of the sale would be sufficient to meet the outlay. The policy of Trinity is to hold the Queen Street property for some years in order that it may benefit by the increase in its value, which it is confidently hoped by Trinity may be expected in the near future and that the increased value of the property would eventually provide for the enlargement of its accommodation on the present site or for the erection of new buildings on another site. It was suggested during our discussions that if a provincial guarantee of a loan to be raised by Trinity on the security of the Queen Street property, and the buildings to be erected on the University land were obtainable, it would be possible for Trinity to borrow what would be required for the erec- tion of new buildings and continue its policy as to the Queen Street pro- perty, and that in that event Trinity might be willing to agree to remove to the University ground. a 1906 lix UNIVERSITY OF TORONTO. a a Though we were unable to reach a conclusion which would enable us to make a specific recommendation, the subject is one deserving of further consid- eration, and we recommend that it be taken up by the Board of Governors, and that a further effort be made to arrive at a basis of agreement more satisfactory than in our opinion is the one now existing. It would not seem unreason- able that the Province should guarantee the suggested loan if the amount of it were limited to the value of the Queen Street lands, and proper pro- visions were made to guard against the possibility of the security being impaired from the interest on the loan being allowed to fall into arrear. It would be proper also, we think, to reserve for a reasonable time for Trinity College a suitable site on the University ground. In the meantime it will be the duty of the authorities of the University to carry out in the spirit as well as in the letter, the existing arrangements for the duplication of lectures. SCHOLARSHIPS. The numerous scholarships and exhibitions open to merit, which are attached to the Colleges of Oxford and Cambridge have been the means of drawing out not a little of the intellectual flower of British youth through the Universities into the great professions and the service of the State. The scholarships as a rule are a part of the original foundation of which the Scholar is the undergraduate, while a Fellow is the graduate member. The exhibitions are the gifts of private benefactors, whose names they bear, and by whose wills, saving necessary amendments, they are regulated. Here private beneficence might find in the foundation of scholarships open to merit an object personally interesting as well as highly beneficial to the State. FUTURE OF THE UNIVERSITY. a The future of our Provincial University, a vital organ at once of our intel- lectual and industrial life, had been imperilled by the multiplication of Uni- versities which distracted public interest and dissipated resources not more than sufficient at best for the maintenance of an adequate institution; while demand for expensive instruction in Science was rapidly increasing, and formidable competition in that department was growing up on the other side of the line. To further the process of reconcentration, and so far as might be necessary, to reorganize, was the duty assigned to this Commission. If we have seemed in fulfilling it, to aim at a high ideal, it was not because we were careless of financial limitations, but because to advance on the right path it is necessary to keep the ideal in view. We have arrived at a critical juncture in the progress of University education. The question presents itself, whether the main object shall be, as it has hitherto been, intellectual culture, or the knowledge which qualifies directly for gainful pursuits and opens the student's way to the material prizes of life. The second object has of late been prevailing, especially where commerce holds sway. The two, though distinct, need not be antagonistic. Science, properly so called, is culture of its kind and those who pursue it may in turn imbibe the spirit of lx No. 42 ROYAL COMMISSION RE culture by association. We could not pretend, in confronting this great question, to forecast or regulate the future. We could do no more than pro- vide a home for culture and science under the same academical roof, uniting them as far as possible, yet leaving each in its way untrammelled by the union. But whatever may have been devised by us, , or can possibly be devised in the way of reorganization, it is on the quality of teaching, on wise and vigorous management, on harmony among those engaged in the work, on the loyal attachment of all, administrators, teachers and students, to the common weal, together with the hearty appreciation and generous support of the people, that the success of the University must depend. Dated at the Grange, Toronto, 4th of April, 1906. J. W. FLAVELLE, (Chairman). GOLDWIN SMITH. W. R. MEREDITH. B. E. WALKER. H. J. CODY. D. BRUCE MACDONALD. A. H. U. COLQUHOUN, (Secretary). BOUND APKJO UNIV, OF MICH LIBRAGI UNIVERSITY OF MICHIGAN 3 9015 07508 2613