Commission of Conservation 
 
 CANADA 
 
 Conservation in 1918 
 
 JAMES WHITE, F.R.G.S., M.E.f.C, 
 
 Assistant to Chairman, Deputy Head, 
 Commission of Conservation 
 
 Reprinted from the Tenth Annual Report of the 
 Commission of Conservation 
 
 OTTAWA 1919
 
 
 
 
 

 
 Commission of Conservation 
 
 CANADA 
 
 Conservation in 1918 
 
 BY 
 
 JAMES WHITE, F.R.G.S., M.E.I.C. 
 
 Assistant to Chairman, Deputy Head, 
 Commission of Conservation 
 
 Reprinted from the Tenth Annual Report of the 
 Commission of Conservation 
 
 OTTAWA 1919 
 
 598751
 
 Commission of Conservation 
 
 Constituted under "The Conservation Act," 8-9 Edward VII, Chap. 27, 1909, and 
 amending Acts 9-1 Edward VII, Chap. 42, 1910, and 3-4 
 George V, Chap. 12, 1913. 
 
 Chairman : 
 
 SIR CLIFFORD SIFTON, K.C.M.G. 
 
 Members: 
 
 Dr. HOWARD MURRAY, Dean, Dalhousie University, Halifax, N.S. 
 
 Dr. CECIL C. JONES, M.A., Ph.D., Chancellor, University of New Brunswick, 
 
 Fredericton, N.B. 
 
 Mr. WILLIAM B. SNOWBALL, Chatham, N.B. 
 Hon. HENRI S. BELAND, M.D., M.P., St. Joseph-de-Beauce, Que. 
 Dr. FRANK D. ADAMS, Dean, Faculty of Applied Science, McGill University, 
 
 Montreal, Que. 
 Mgr. CHARLES P. CHOQUETTE, M.A., St. Hyacinthe, Que., Professor, Seminary of 
 
 St. Hyacinthe, and Member of Faculty, Laval University. 
 Mr. EDWARD GOHIER, St. Laurent, Que. 
 
 Mr. W. F. TYE, Past-president, Engineering Institute of Canada, Montreal, Que. 
 Dr. JAMES W. ROBERTSON, C.M.G., Ottawa, Ont. 
 Hon. Senator WILLIAM CAMERON EDWARDS, Ottawa, Ont. 
 Mr. CHARLES A. McCooL, Pembroke, Ont. 
 
 Sir EDMUND B. OSLER, M.P., Governor, University of Toronto, Toronto, Ont. 
 Mr. JOHN F. MACKAY, Toronto, Ont. 
 
 Dr. B. E. FERNOW, Dean, Faculty of Forestry, University of Toronto, Toronto, Ont. 
 Dr. GEORGE BRYCE, University of Manitoba, Winnipeg, Man. 
 Dr. WILLIAM J. RUTHERFORD, B.S.A., Dean, Faculty of Agriculture, University of 
 
 Saskatchewan, Saskatoon, Sask. 
 Dr. HENRY M. TORY, M.A., D.Sc., President, University of Alberta, Edmonton, 
 
 Alta. 
 Mr. JOHN PEASE BABCOCK, Assistant Commissioner of Fisheries, Victoria, B.C. 
 
 Members ex-officio: 
 
 Hon. T. A. CRERAR, Minister of Agriculture, Ottawa. 
 
 Hon. ARTHUR MEIGHEN, Minister of the Interior, Ottawa. 
 
 Hon. MARTIN BURRELL, Secretary of State and Minister of Mines, Ottawa. 
 
 Hon. AUBIN E. ARSENAULT, Premier, Prince Edward Island. 
 
 Hon. ORLANDO T. DANIELS, Attorney-General, Nova Scotia. 
 
 Hon. E. A. SMITH, Minister of Lands and Mines, New Brunswick. 
 
 Hon. JULES ALLARD, Minister of Lands and Forests, Quebec. 
 
 Hon. G. H. FERGUSON, Minister of Lands, Forests and Mines, Ontario. 
 
 Hon. THOMAS H. JOHNSON, Attorney-General, Manitoba. 
 
 Hon. CHARLES STEWART, Premier, Minister of Railways and Telephones, Alberta. 
 
 Hon. T. D. PATTULLO, Minister of Lands, British Columbia. 
 
 Assistant to Chairman, Deputy Head : 
 Mr. JAMES WHITE.
 
 Conservation in 1918 
 
 BY 
 
 JAMES WHITE, F.R.G.S., M.E.I.C. 
 
 Assistant to Chairman, Deputy Head, Commission of Conservation 
 
 GENTLEMEN: Before presenting the Annual Review of the 
 work of the Commission of Conservation during 1918, I 
 desire to read a letter from Mr. Babcock, our Commissioner 
 in British Columbia. We had hoped to have a paper by Mr. Bab- 
 cock with respect to fishery conditions in British Columbia, particu- 
 larly with reference to salmon. Mr. Babcock says: 
 
 "I am just getting around after an attack of influenza, hence 
 my failure to reply to your notes. I shall be unable to attend the 
 Annual Meeting, and I take it it is now too late to supply you with 
 data as to fishery conditions in this province." 
 
 "I may say that the pack of salmon is the largest on record, 
 due entirely to the increase from, and the utilization of, the autumn 
 grades of fish, which have only recently come into demand. The 
 run to the Eraser was very much the smallest ever known. The river 
 may be said to be fished out of sockeye, and the run of pink salmon, 
 which was not used previous to the war, is fast disappearing."* 
 
 Unfortunately, this is an exact fulfilment of the prediction that 
 Mr. Babcock made when he addressed us at our last annual meeting. 
 
 You will learn with much regret that, owing to ill health, your 
 confrere, Dr. Fernow, is unable to attend the meeting. He has writ- 
 ten expressing his regret, and has requested that his letter be read 
 to the meeting. It is as follows: 
 
 3 February, 1919 
 
 In answer to your announcement of the meeting of the Commis- 
 sion, I regret to say that my physical condition will forbid my 
 attending the meeting. 
 
 As I wrote you some months ago, I intended to discuss in a 
 summary way the difficulties, silvicultural, economic and political, 
 in developing forestry methods in Canada, and I would have taken 
 advantage of the opportunity to congratulate the Commission 
 
 *The formation of an International Commission consisting of two members each repre- 
 senting Canada and the United States is provided for in th; draft of a proposed treaty between the 
 two countries, governing the sockeye fishing industry in the Fraser river in the Dominion, and the 
 lower portion of the strait of Georgia and Juan de Fuca strait, in the state of Washington. The 
 Commission it is proposed to establish would conduct an inquiry into the life history of the sockeye 
 salmon hatchery methods, spawning grounds and other matters affecting the industry. The Com- 
 mission will be empowered to recommend modifications of the existing regulations under the terms 
 of the draft treaty. The treaty is aimed to prevent the depletion of the sockeye fishing industry. 
 The limiting of the number of licenses is one of the measures suggested to prevent the extinction of 
 the sockeye salmon in these waters. It is proposed to limit the licenses to resident Canadians in 
 British Columbia or to companies licensed to do business in that Province. The same condition 
 would be imposed in Washington by limiting licenses to American citizens or authorized companies. 
 
 59875 1J
 
 on the work it has so far done through its Forestry Committee and 
 through the Chief Forester of the Commission, who deserves unstinted 
 praise for his active push, persistency and efficiency. 
 
 The Commission has to its credit, first of all, the inauguration 
 of most thorough control over forest fires along railways, which was 
 brought about through co-operation with the Railway Commission 
 and with Provincial and Dominion authorities. In this connection, 
 it has to its credit the publication of some three volumes of discussion 
 on means of suppressing fires and has successfully stimulated private 
 endeavour in this direction. 
 
 In this connection, also, the Commission has made an extensive 
 study and demonstration of the result of cutting and subsequent 
 fires on cut-over lands with regard to reproduction. This study 
 was made on a 2,000 square mile sample, the Trent watershed, 
 and a similar investigation has been made in British Columbia, 
 showing that our optimistic anticipations of natural replacement 
 of the valuable timber without human assistance are largely doomed 
 to disappointment. 
 
 The Commission was very properly engaged early in ascertaining 
 the status of our forest resources and has completed and published 
 exhaustive forest surveys of two provinces, Nova Scotia and British 
 Columbia, and has surveyed part of a third, Saskatchewan. It has 
 been also instrumental in bringing about, encouraging and aiding 
 stock-taking in a fourth province, New Brunswick. 
 
 These are all legitimate and praiseworthy activities of the 
 Commission, whose functions are largely educative. But I would 
 have particularly applauded the latest development of the Commis- 
 sion's forestry work, namely, the establishment of permanent sample 
 plots to study in detail the results in reproduction and growth and 
 different treatment and logging of our pulpwoods. This work has 
 been conducted by Dr. Howe, in co-operation with several paper 
 companies. The readiness with which this co-operation (financial 
 and otherwise) was secured is proof of the practical value of this 
 investigation. Indeed, this is the first systematic attempt to lay 
 a basis for silvicultural practice, without which the forester is helpless, 
 and the Commission is the best agency for securing this fundamental 
 knowledge, as could be readily argued. 
 
 That this work of the Commission is done largely in co-operation 
 with the staff and students of the Faculty of Forestry of Toronto 
 University is, of course, specially gratifying to me. 
 
 There is one more important political direction in which the 
 Commission, in my opinion, should exert itself, namely, the transfer 
 of the forest resources of the Middle Provinces to those provinces. 
 Such transfer would undoubtedly lead to the exploitation of these 
 resources. Forestry is provision for the future, and such provision 
 means present curtailment of revenue or present outlay for the sake 
 of future revenue. Will and can the provinces afford such a financial 
 policy? 
 
 Wishing you a successful meeting, 
 
 Sincerely yours, 
 
 B. E. FERNOW
 
 Sir Clifford Since our last annual meeting, Sir Clifford Sifton has 
 
 Siftpn's resigned his position as Chairman of the Commission. 
 
 Resignation . * , 
 
 Pending the appointment of his successor, the Acting 
 
 Chairman, Hon. Senator Edwards, has instructed me to prepare an 
 annual statement of the operations of the Commission along much 
 the same lines as Sir Clifford has done in the past. 
 
 First, I desire to refer to the great loss the Commission has 
 suffered by reason of Sir Clifford Sifton's resignation. His untiring 
 energy, his broad outlook, his ability to grasp the factors of a 
 problem and arrive at its solution, and his master mind were well 
 summed up by Augustus Bridle in his Sons of Canada, when he 
 said that Sir Clifford is " the greatest constructive statesman that 
 Canada has yet produced." 
 
 When we commenced our operations we were without any pre- 
 cedent to guide us, inasmuch as we were a unique organization. No 
 other body, governmental or private, had ever undertaken conserva- 
 tion work on a large or comprehensive scale. The organic Act estab- 
 lishing the Commission, draughted by Sir Clifford, provided 
 for the appointment of representatives of the Dominion Government, 
 of the Government of each province, and of at least one university 
 in each province. At the same time, it also provided for the appoint- 
 ment of representatives from each province and representatives who 
 were interested in our great natural resources. 
 
 Efficiency and * n commencing the work of organization, Sir 
 Economy of Clifford laid down some basic rules, which are 
 worthy of record. First, he gave instructions 
 that all materials, printing, binding, etc., were to be purchased 
 in the cheapest market, irrespective of politics, religion, nationality, 
 or other consideration. Second, that the staff should consist of a 
 limited staff of experts, so selected that, in a general way, we would 
 have one expert adviser respecting each of the great natural resources, 
 and that these advisers should, so far as possible, be assisted by clever 
 members of the weaker sex. Third, that when special investigations 
 which could be carried to completion in a limited space of time were 
 undertaken, special investigators would be employed only until the 
 investigation was completed, such action permitting the payment of 
 ample remuneration without, in the aggregate, incurring excessive 
 total cost. Fourth, he suggested that the work of the Commission 
 could be carried on with the maximum of advantage if the work 
 were apportioned to committees, one for each great natural resource 
 and one on publication. 
 
 As a result, the Commission can fairly claim that its achieve- 
 ments are out of all proportion greater than its expenditure. An
 
 enormous mass of data has been collected, and much of it has been 
 incorporated in published reports. These publications have made 
 this information available to the public in such enduring form that 
 they will be standard works of reference for many years, particularly 
 as our efforts have been steadily directed to the production of 
 exhaustive reports rather than pamphlets of a superficial or transitory 
 nature.* 
 
 Owing to our limited financial resources, we were, 
 ofEffbrt ati0n fr m t ^ ie very beginning, forced to adopt the plan 
 
 of temporarily spending more money upon one or two 
 investigations than upon any others. Thus, for a time, we expended a 
 maximum upon agriculture, particularly upon our illustration farms. 
 
 *The Atlantic Monthly for March, 1919, pp. 381-391, contains an article by 
 Mr. Arthur D. Little, intituled ' Developing the Estate.' Mr. Little is the head 
 of the firm of Arthur D. Little Company, and has devoted special attention to the 
 subject of conservation. His firm has been employed by the Canadian Pacific 
 Railway to report on the possibilities of development in the territory traversed by 
 their lines. 
 
 In his article, Mr. Little refers only to the United States. He reviews con- 
 ditions created by the war, the best means of utilizing their natural resources, and 
 the betterment of conditions. He discusses methods of increasing agricultural 
 crops, drainage of swamps, irrigation, prevention of destruction of the forests, 
 better roads, increased use of water-power, more efficient utilization of coal and 
 many similar problems. 
 
 It is highly gratifying to find that Mr. Little, after a survey of these problems, 
 and after a comprehensive study of conditions in Canada, recommends for the United 
 States the establishment of an Economic Commission, Though Mr. Little dubs it 
 an ' Economic ' Commission, its constitution and functions make it almost a replica 
 of our Conservation Commission. 
 
 The testimony of this skilled investigator is so lucid and compelling, that the 
 recommendations are quoted below. Mr. Little says: 
 
 " No Congressional Committee, no academic council, no ephemeral organ- 
 ization can cope with the stupendous problem. The mutually entangled 
 intricacies of its component elements can be gradually reduced to order and 
 woven into the majestic tapestry of an adequate general plan, only, it would 
 seem, by a permanent commission, as detached from partisan politics as the 
 Supreme Court, comprising in its membership the best executive, economic, 
 and technical brains in the country, and planning and operating over long years. 
 This commission should stand in close relationship to the Chief Executive and 
 to the Congress, its members being appointed by the President, subject to 
 confirmation by the Senate. It should be compact, with no more than fifteen 
 members, including the Secretaries of Agriculture, Labour, Commerce, and the 
 Interior, through whom the chiefs of the scientific bureaus of the government 
 would be brought into its deliberations. Above all, its members must be 
 drawn chiefly from the great constructive and productive agencies of the 
 country, and must be truly representative of the aspirations and interests of 
 our citizenship. Whether its individual components are members of House 
 or Senate, Republicans or Democrats, should, in this relationship, be of interest 
 only to their biographers. 
 
 " Such an Economic Commission would evolve from many economic 
 studies and proposals for specific betterments co-ordinated plans which would 
 bind together in a close articulation the attainable benefits of each. In the 
 exercise of an intrinsic function, it would submit to Congress recommendations 
 for the required legislation, and apprise the country of the need and reason 
 for its demands. To it should be assigned ultimate responsibility to Congress, 
 through the President, for the execution of its duly authorized proposals."
 
 Having demonstrated the great value of such farms as forcible 
 educative agents, we transferred the farms to the Federal Dept. of 
 Agriculture. Through the results obtained, we thus demonstrated to 
 the farmers of the neighbourhood that one of themselves was obtaining 
 these results without any assistance other than the advice of our experts 
 and at no greater cost than their own farming operations. It was a 
 demonstration that, by following our advice, our illustration farmer 
 could obtain an increased yield, and that practically the whole of the 
 increase was profit. 
 
 At another period, we expended a maximum upon water-power 
 investigations, and we may fairly claim that, throughout Canada, we 
 excited interest in this great resource. We published a general work 
 on the Water- Powers of Canada in 1911, followed by the Water- 
 Powers of the Prairie Provinces in 1918, and the Water-Powers of 
 British Columbia will be issued this year. 
 
 For a time we devoted special attention to Town Planning and 
 Housing, and we now see the partial fruition of our efforts in the 
 appropriation of $25,000,000 for housing. 
 
 War Conditions Conditions created by the war have directed atten- 
 Emphasize tion to the necessity of adopting measures of con- 
 
 Conservation servation. It is not too much to say that the subject 
 of conservation is uppermost in the minds of the thinking men of 
 the world. The United States has been called the ' most wasteful 
 nation in the world,' but a survey of conditions in Canada, and the 
 high cost of living indicate that Canada is pre-eminent in that respect 
 a pre-eminence of which we have no reason to be proud. It is 
 axiomatic that the nation which can produce at lowest cost is the 
 nation that will obtain the trade of the world. Hitherto, Great 
 Britain has been the greatest exporting nation, and Germany's 
 failure to oust Britain by a thoroughly unsound system of bounties, 
 special freight rates, subsidies, and special privileges which eventu- 
 ally became an almost unbearable domestic burden, was one of the 
 principal causes of the war. 
 
 We are now endeavouring to re-adjust ourselves to 
 
 Canada must post-war conditions, but it must be borne in mind 
 Husband 
 
 Resources that, if we burden ourselves with extravagant and 
 
 wasteful methods of developing or of utilizing our 
 natural resources, if we destroy our created resources by fire, if we 
 lock up our floating capital in unremunerative works, we are fatally 
 handicapping ourselves in the great race for world trade or for any 
 considerable portion of it. 
 
 Since our last meeting, the great world war has practically 
 ended. Our Commissioner, Hon. Dr. Beland, has at last been released
 
 8 
 
 by the Germans. We had hoped to have an opportunity to give 
 Dr. Beland a warm welcome, and to express our deep sympathy 
 with him for the hardships and injustice that he has suffered from 
 the Germans since our meeting in January, 1914. The Acting Chair- 
 man, Hon. Senator Edwards, endeavoured to have Dr. Beland address 
 you, but an engagement to give an address in the United States, 
 made several months ago, prevented his accepting. 
 
 I regret to have to record that in October last, Miss Norma 
 Johnston, my private secretary, succumbed to influenza. As a result 
 of overwork in the autumn of 1917, while picking fruit on a farm 
 in Dundas county, Ont., her resistant powers were so reduced that 
 she was unable to combat the disease. Able, full of zeal for her work, 
 and a charming personality, she gave her life as a result of patriotic- 
 ally trying to ' do her bit.' 
 
 MILITARY SERVICE OF STAFF 
 
 Before dealing with the general work of the Commission, I 
 desire to record the military service of the staff during the war. 
 
 Pte. P. M. Baldwin, Canadian Army Medical Corps Mr. 
 Baldwin is Assistant Editor. He twice endeavoured to enlist in 
 combatant corps but was rejected on account of defective eyesight. 
 Determined to do his bit, he enlisted as stretcher-bearer in the 
 Canadian Army Medical Corps in 1916. Later, he was transferred 
 to the 1st Canadian Field Ambulance Corps. After considerable 
 service in France, he obtained a transfer to the 1st Battalion, Cana- 
 dian Engineers, and is now in Germany. 
 
 Pte. James Carroll, 199th Battalion, Duchess of Connaught Irish 
 Rangers Mr. Carroll was a messenger. He was reported missing 
 August 15th, 1917, and has since been reported 'officially dead.' 
 It is believed that he was either blown to pieces or was buried by a 
 shell. 
 
 Bom. Allan Donnell, 46th Queen's Battery Mr. Donnell is also 
 Assistant Editor. He was badly wounded by a gas shell at the battle 
 of Vimy Ridge. He was invalided to Ottawa, and on Dec. 31st, 
 1917, discharged as unfit for further service in the army. 
 
 Capt. G. H. Ferguson, M.C., Canadian Engineers Capt. 
 Ferguson is one of our engineers. Commissioned Nov. 1st, 1914, 
 in the Canadian Hydrological Corps, with the rank of captain, he 
 reverted to the rank of lieutenant to go overseas with the Canadian 
 Engineers. He was promoted for duty in France and was decorated 
 with the Military Cross. He was continuously on duty in the for- 
 ward area until the end of June, 1918, when his leg was broken. Due
 
 to continuous exposure, he suffered from complications. He returned 
 to Canada for a rest, and was convalescing when the armistice was 
 signed. 
 
 Col. C. A. Hodgetts, M.D. Col. Hodgetts is our Medical 
 Adviser. He went overseas in October, 1914, as Commissioner of 
 the Canadian Red Cross. It is sufficient to say that the Canadian 
 hospitals were better equipped, both as regards staff and material 
 equipment, than any other. Col. Hodgetts resigned his position as 
 Red Cross Commissioner in April, 1918. From that date till December 
 last he acted as Deputy Commissioner of the Medical Staff of the 
 Ministry of National Services, serving three months as Assistant to 
 the Commissioner in Ireland. He returned to Canada Dec. 25th, 
 1918. 
 
 Lieut. E. Carruthers Little, 3rd Canadian Ammunition Corps 
 Lieut. Little was one of the engineers engaged on our civic survey of 
 Ottawa. He enlisted in Sept., 1916, and, later, was given a com- 
 mission. For his services he has been awarded the Belgian Cross 
 and has been mentioned in despatches. Lieut. Little advanced to 
 the Rhine with the Canadian Forces, and is now in Belgium. 
 
 Pte. Oliver Master Mr. Master is Assistant Secretary. After 
 rejection by the infantry and artillery on account of defective eyesight, 
 he enlisted as a private in the Queen's Ambulance Corps and went 
 overseas. Subsequent to his arrival in England, he obtained a trans- 
 fer to the infantry. In August, 1918, Mr. Master's platoon was on 
 outpost duty and was surrounded by the Germans in a counter 
 attack. Only three men, including Mr. Master, were able to fight 
 their way back. Later, he was recommended for a commission and 
 was taking his officer's training course when the armistice was signed. 
 You will regret to hear that he is now in Canterbury hospital, 
 England, suffering from the after-effects of injury to his knee from 
 a spent machine-gun bullet. 
 
 Pte. Frederick N. McKay, late 77th Battalion Mr. McKay 
 is a messenger. He went overseas, but was invalided back to Canada 
 and discharged as unfit for further service in the army. 
 
 Frederick Corp, one of our messengers, and a married man, en- 
 deavoured to enlist, but was rejected by the combatant branches of 
 the service and, later, by the non-combatant branches. 
 
 HOUSING 
 
 Mr. Thomas Adams will address you on 'Housing in Canada,' 
 and I will only refer briefly to the subject. The Dominion Govern- 
 ment has appropriated $25,000,000 for housing, to be expended
 
 10 
 
 under the direction of the Housing Committee of the Cabinet, and, 
 on December 12, Mr. Adams was appointed to assist the committee 
 in carrying out this very important work. 
 
 In Great Britain, it has been found that the shortage of houses 
 exceeds 300,000, and the Government is going " full steam ahead with 
 building," to quote Dr. Addison, President of the Local Government 
 Board. 
 
 A general scheme for the Dominion, drawn up by the Housing 
 Committee, has been approved by the Provincial Governments and is 
 now being used as the basis of legislation for each province. This 
 scheme has received general approval both in Canada and in the 
 United States. 
 
 The Order in Council authorizing the loan of $25,000,000 pro- 
 vides: (a) Upon request, the Minister of Finance may make loans 
 to the Government of any province of Canada; (6) the maximum 
 amount loaned to any one province shall be the proportion of the 
 $25,000,000 which the population of said province bears to the 
 population of Canada; (c) maximum period of loan shall be 20 
 years, the provinces being permitted to repay whole or part of the 
 principal at an earlier date if they so desire; (d) interest shall be 
 charged at 5 per cent, payable half-yearly upon advances from the 
 dates thereof, respectively; (e) bonds, debentures or other forms of 
 security, if approved by the Minister of Finance, may be accepted 
 as evidencing the indebtedness of any Provincial Government; (f) 
 advances shall be made from the War Appropriation; (g) advances 
 may be made as soon as a general scheme of housing shall have been 
 agreed upon between the Dominion Government and the Government 
 of the province applying for a loan. 
 
 Loans will be grafnted to Provincial Governments on the following 
 four conditions: 
 
 1. Each province shall submit to the Federal Government, 
 for approval, a general housing scheme, setting out the standards 
 and conditions to be complied with in connection with local hous- 
 ing schemes. 
 
 2. As the object is to facilitate the erection of dwellings, at a 
 moderate cost, for workingmen, particularly returned soldiers, the 
 following maxima have been fixed: 
 
 (a) Detached or semi-detached dwellings, with walls constructed 
 wholly or partly of frame, stucco on frame, brick veneer, 
 inclusive of the capital value of the site and necessary local 
 improvements: with 4 or 5 rooms, exclusive of bath- 
 room and summer kitchen, $3,000. With 6 or 7 rooms, 
 exclusive of bathroom and summer kitchen, $3,500. 
 
 (&) Detached, semi-detached, groups of three or more or duplex 
 (cottage flat) dwellings, with walls of brick, hollow-tile, 
 stone or concrete, and roofing of fire-proof materials, 
 inclusive of the capital value of the site and necessary 
 local improvements: with 4 or 5 rooms, exclusive of
 
 11 
 
 bathroom and summer kitchen, $4,000. With 6 or 7 
 rooms, exclusive of bathroom and summer kitchen, 
 $4,500. 
 
 3. Public money may be advanced for building houses on sites 
 owned by (a) The Provincial Government or municipality, (b) 
 housing societies or companies, comprising groups of citizens assoc- 
 iated to promote good housing, dividends payable by such societies 
 or companies being limited to 6 per cent, (c) or owners of lots for the 
 purpose of erecting houses for their own occupancy. 
 
 4. The Federal loan will be repayable by the province over a 
 period of 20 years, provided that it may be extended to 30 years in 
 respect of any portion of the loan which the Provincial Government 
 may decide to re-lend for thirty years for such purposes as purchasing 
 land or erecting buildings of a more durable class. Repayments by 
 the provinces on account of federal loans may be made quarterly, 
 if so desired, or otherwise as may be agreed upon.* 
 
 The Halifax disaster occurred shortly after our Ninth Annual 
 Meeting. Our Town Planning Adviser, Mr. Thomas Adams was 
 requested to visit the city and prepare a report respecting the recon- 
 struction and planning of the devastated area. The schemes recom- 
 mended by him were adopted by the Relief Commission and by the 
 City Council of Halifax. The latest information, however, indicates 
 that the plans are not being carried out in their entirety. The first 
 steps in connection with the preparation of a scheme for the whole 
 city have been taken, but it is regrettable that the Relief Commission 
 has no expert adviser. 
 
 The St. John town-planning scheme has reached the final stage 
 but still awaits the approval of the City Council and of the Provin- 
 cial Government. The results obtained are not, however, com- 
 pletely satisfactory, as no accurate topographical map of the area 
 was available, and the city was unable to find the money for the 
 surveys. We are endeavouring to induce one of the Federal Depart- 
 ments to undertake the work of making such surveys of the vicinity 
 of the principal cities of Canada. 
 
 The Province of Prince Edward Island has passed into law the 
 Town-Planning Act draughted by the Commission. When the De- 
 velopment Board, authorized by this Act, is appointed, Mr. Adams 
 will co-operate with them in the formulation of a town-planning 
 scheme for the new town of Port Borden. 
 
 At the request of Hon. Mr. Taschereau, Minister of Public 
 Works for Quebec, Mr. Adams is preparing a draft Town-Planning 
 Act for that province. If passed, British Columbia will be then 
 the only province without such legislation. 
 
 Mr. Adams has supervised the town-planning of the town of 
 Kipawa, Que., for the Kipawa Fibre Co. The present plan provides 
 
 'For further details respecting the loan for housing, see Appendix V.
 
 12 
 
 for a population of 2,000 to 3,000, and provision will be made for the 
 anticipated growth. Sewers and water mains are being laid in the 
 sections in which the first buildings are being erected. Thus, the devel- 
 opment will proceed evenly and gradually, the conveniences and 
 utilities being constructed to serve built-up sections instead of the 
 usual method, namely, providing for a mixture of buildings and 
 vacant lots. 
 
 A Department of Municipal Affairs has been created in Quebec 
 and doubtless will effectively co-ordinate the work of the munici- 
 palities. 
 
 We are urging that Montreal build a model village, erecting, 
 say, 50 types of houses, thus illustrating in the most forcible and 
 practical way the best ideas in housing and town-planning. 
 
 An amended Planning and Development Act has been passed 
 in Ontario wVi^h, while an advance on previous Acts, does not go 
 as far as is desirable. We are urging that this act be further ex- 
 tended and widened. 
 
 Plans of Bnwkesbury Garden Village, Ojibway and Hamilton 
 have been submitted to Mr. Adams for approval and comment. He 
 has also been consulted respecting town-planning and housing at 
 Renfrew, Oshawa, Belleville, London, Chatham, Windsor, etc. 
 
 The Ontario Government has appropriated $2,000,000 for 
 housing, to be loaned to municipalities, and a strong committee has 
 been appointed to prepare a report on housing. 
 
 During the war, the Manitoba Government has not taken action 
 under its Town-Planning Act, but there are promising indications 
 that the province will appoint a director of housing and town plan- 
 ning. If such official be appointed we may confidently anticipate 
 effective work. 
 
 Conferences have been had with the officials of Calgary and 
 Edmonton respecting the threat that certain subdivisions would be 
 taken out of those cities. Every endeavour is being made to assist 
 them to decrease their financial difficulties. To quote Mr. Adams: 
 " The idea is that the land will be planned in such a way that the 
 money now being wasted on local improvements will be saved in 
 the future by carrying out such improvements as will be required 
 to deal with the growth of the population and not with the extraordin- 
 ary pictures conceived by real estate owners with vivid imagina- 
 tions." 
 
 PUBLIC HEALTH 
 
 As Colonel Hodgetts will address you on the general subject 
 of Public Health, particularly with reference to advances made 
 during the last five years, a brief reference will suffice.
 
 13 
 
 With so much of evil resulting from the war, it is a, 
 satisfaction to find some good results from it. The 
 Lancet states that, in Great Britain, functional 
 nervous diseases among the civil population practically disappeared. 
 In Vienna, it was found that all degrees of diabetes were favourably 
 influenced; in males almost without exception and in females, 
 frequently but not universally. Whereas not one of 39 slight diabetics 
 before the war could be regarded as cured, 33 out of 39 became 
 sugar-free under war conditions. 
 
 The Lancet does not speculate why these good effects were 
 produced. The starvation method of treating diabetes may throw 
 some light on the matter, but it is also not improbable that-the great 
 mental and nervous strain involved in the concentration of the mind 
 on outside circumstances may have reacted favourably -upon the 
 whole economy. 
 Work of On the other hand, many nervous afff c pns, that 
 
 British Medical it is customary to call 'shell shock,' have affected 
 Research Council Qur sold j ers Ag a regult of the WQrk of the Bridsh 
 
 Medical Research Committee, it is now possible to take a wider 
 and a more hopeful view of the nervous diseases of the war. 
 Incidentally, mental disease generally has passed from the region 
 of mere expectancy to a reasonable anticipation of beneficial results 
 under proper treatment. Here, again, the war has left a legacy 
 of benefit. 
 
 The London Times points out that, during the last 
 Diagnosis ^ ^ our Y ears a new medicine, which fundamentally 
 
 alters the whole attitude to disease, has arisen. A 
 few years ago disease was supposed to be either acute or chronic, 
 infectious or non-infectious, curable or incurable. The patient was 
 said to have dyspepsia or lumbago or Bright's disease or any other 
 disease. 
 
 In so stating it, the doctor was, as a rule, only saying that a 
 certain organ had broken down and had become the seat of 'fibrous 
 change,' just as the feet become the seat of fibrous change when 
 corns grow on them. In that conception, the fibrous change consti- 
 tuted the whole disease and was not, as we now know, one of the 
 results of the disease. Doctors thought of the heart or liver or lungs 
 when they should have been thinking of great bodily changes due to 
 assaults upon the whole organism. 
 
 Bacteriology has demonstrated that infection with 
 Bactoiology certain germs will result in certain fibrous changes 
 
 which we call disease. Though it had been recognized 
 that such diseases as tuberculosis and syphilis were of bacterial
 
 14 
 
 origin, till recently, the old conceptions respecting many affections, 
 such as heart disease, still prevailed. 
 
 The war revealed young men with all the symptoms and signs of 
 heart disease, kidney disease, etc., but the fibrous change was absent. 
 The majority of these men recovered, though suffering from what 
 we had hitherto called 'incurable' diseases. 
 
 Dysentery, trench fever, scarlet fever and other 
 of much Disease diseases were found to be followed by heart and other 
 organic troubles, which showed that these diseases 
 were due to the invasion of the body by germs. It became evident, 
 therefore, that the so-called fibrous changes, are, in reality, signs of 
 Nature's struggles against disease. 
 
 The new medicine does not shake its head over heart murmurs; 
 it seeks the infection, whether in the teeth or throat or alimentary 
 tract or elsewhere, and attempts to eradicate it. "The shining 
 truth, that, if we can prevent or stay infection, we can probably 
 prevent all the effects of infection that is to say, the bulk of 
 disease has not yet been seen by all. When it is seen, it will no 
 longer be necessary to conduct an Al Empire on a 3 population.'" 1 
 
 Chronic Disease The new medicine has demonstrated that the public 
 Due to Teeth should concentrate their attention on one disease 
 almost above all others, namely, decay of the teeth. This disease 
 lowers the health of the child and predisposes it to tuberculosis 
 and disease generally. It is estimated that at least 20 per cent of 
 all chronic disease in Great Britain is due to the teeth. 
 
 The president of the Dental Association of New Zealand, in urging 
 the establishment of dental bursaries, stated that 95 per cent of the 
 school children of New Zealand had dental caries. He said that, if 
 cows were similarly affected, they would not be tolerated for one 
 month. 
 
 Dr. Sim Wallace, the dental surgeon, states that the chief cause 
 of dental disease is the "adhesive and easily fermentable nature of 
 the modern diet; also meals between meals, and especially the bread - 
 and-milk at bed-time. The last named leaves a poultice over the 
 crevices of, and between, the teeth during the night;" nascent lactic 
 acid forms, attacks the enamel and starts the disease. 
 
 London Times, Jan. 6, 1919.
 
 15 
 INFLUENZA 
 
 From a health standpoint, the most important 
 Deadlier than 
 War occurrence during 1918 was the world -wide epidemic 
 
 of influenza and pneumonia. Had the same death rate 
 prevailed during the four-and-a-half-year period commencing July, 
 1914, it would have caused the deaths of 108,000,000 persons, or five 
 times deadlier than the war. The medical correspondent of the 
 London Times says that "never since the ' Black death ' has such a 
 plague swept over the world, illustrating, as never before, the need of 
 a new survey of health measures." 
 
 It has been stated in the press that game in northern Saskatche- 
 wan is being 'decimated' by influenza, that moose are dying from it. 
 On the other hand, scientists have found it impossible to transfer 
 the disease to any of a long list of animals; monkeys alone showed a 
 toxic effect, but true influenza did not develop. These investigators 
 assert that the disease which attacks animals is what is commonly 
 known as epizootic, which, a quarter of a century ago, attacked horses, 
 and thus seriously affected transportation in Canada and the United 
 States. 
 
 GOITRE 
 
 Alarmed by statements respecting the prevalence of 
 Investigation . . . . , , . 
 
 Undertaken goitre in Alberta and British Columbia, and its bane- 
 
 ful effects, the residents of these provinces requested 
 the Commission to investigate this question. Enquiry among some 
 of the best authorities indicated that there was no foundation for the 
 'scare,' and we were naturally averse to the expenditure of money and 
 time on an investigation which did not promise commensurate results. 
 Eventually, as we were requested by the Provincial Board of Health 
 of Alberta and, as the alarm, instead of decreasing, seemed to be 
 increasing, we agreed to investigate it. It would obviously have been 
 improper to request that the enquiry be undertaken by any one who 
 had taken part directly, or indirectly, in the discussion of the occur- 
 rence of goitre in Alberta. We, therefore, requested Dr. Shepherd, of 
 Montreal, Emeritus Professor and late Dean of the Faculty of Medi- 
 cine, McGill University, and one of the highest authorities in North 
 America, to undertake the investigation. Dr. Shepherd agreed to do 
 so, visited Alberta, and calmed the apprehensions of the people 
 respecting the prevalence and the effects of the common form of goitre. 
 Later, Dr. Shepherd contributed a pamphlet on Goitre, which is now 
 in the press and will be issued at an early date. It is proper, also 
 to acknowledge the indebtedness of the Commission and of the people
 
 16 
 
 of Canada to Dr. Shepherd for his valuable services, which have been 
 rendered without remuneration, other than his travelling expenses, 
 and were rendered when his time was fully occupied with his work on 
 the Hospitals Commission. 
 
 FORESTS 
 
 At the present time we are expending more money upon the 
 investigation of our forests than upon any other resource. Bearing 
 in mind the important part that timber will play in the work of 
 reconstruction, it is peculiarly fitting that we plan to maintain and 
 to increase its economic importance. 
 
 The importance of forests in the war is well known, 
 the War but, only since the armistice, have we known that 
 
 cutting in France had reached such a stage that 
 continuance of the war would have necessitated commencing opera- 
 tions in mountainous regions, heretofore considered inaccessible. In 
 Great Britain the end of the reserves of firs and pines, the trees in 
 greatest demand for military requirements, was in sight. To repair 
 the cutting during the war the British Government has appointed 
 an authority with power to make arrangements for developing 
 afforestation in the United Kingdom. This authority has power to 
 obtain seed, raise nursery stocks, train foresters, make surveys, and 
 initiate schemes of afforestation and replanting and to expend up 
 to $500,000 for these purposes. 
 
 The operations of our Canadian Forestry corps in 
 Canadian ^ . . , 
 
 Forestry Corps Great Britain and France are reported to have saved 
 
 ocean tonnage sufficient to carry food for 15,000,000 
 people. In addition, these men will return to Canada with a new 
 viewpoint. The destruction of the forest by fire will no longer be 
 regarded as unimportant. They will return with a tremendously 
 increased realization of the importance of our forests. 
 
 Statesmen and business men have repeatedly emphasized the 
 part that the further development of our natural resources must 
 play in reconstruction after the war. Any such programme must 
 take full account of the forest. Such increased development will 
 assist materially in providing against unemployment, through the 
 building up of new forest industries, in addition to the 5,000 wood- 
 using industries already in existence. It will be a large factor in 
 stabilizing economic conditions generally. 
 
 E rt T ^ large export trade is particularly essential to 
 
 in Timber Canada, to redress her unfavourable trade balance. 
 
 In this direction, our forests hold a position of peculiar 
 strategic importance, both actual and potential. In British Columbia, 
 for example, it has been shown that the annual lumber cut can be
 
 17 
 
 increased five-fold, under good management, without impairing the 
 forest capital stock. This means an enormous export trade, to which 
 the shortage of shipping is still the greatest obstacle. 
 
 The present and potential value of Canada's expor,t lumber 
 trade is indicated by the order recently placed by Great Britain for 
 lumber from Canada, aggregating around $40,000,000 in value. It 
 has been estimated that reconstruction in France and Belgium will 
 require 25,000,000,000 feet. 
 
 , _ Mr. F. J. Campbell, President, Canadian Pulp and 
 
 Pulp and Paper J 
 
 Industry Paper Association, estimates the value of the output 
 
 of Canadian pulp and paper mills during 1918 at 
 $110,000,000 to $115,000,000, as compared with about $85,000,000 
 in 1917. During the half-year ending September 30, 1918, Canada 
 exported pulp and paper to the value of $40,636,919, as compared 
 with $31,074,168 during the corresponding period of 1917 and 
 $20,040,745 in the same half-year of 1916. If our exports were 
 maintained at the same rate during the second half of the fiscal year 
 they would aggregate about $80,000,000, or, allowing for a decrease 
 since the armistice, say $70,000,000. During the six months ending 
 September 30, 1918, we exported 980,652 cords of pulpwood, valued 
 at $9,327,901, or at the rate of $18,750,000 per annum. 
 
 In 1917, the output of the 3,000 timber and woodpulp plants 
 in Canada aggregated 4,142,711,000 feet. The total cut of spruce 
 was 1,466,558,000 feet; white pine, 791,609,000; Douglas fir, 
 706,996,000, and hemlock, 332,722,000. 
 
 One-fourth of the newsprint used in the United States comes 
 from Canada, and fifteen per cent of the pulpwood consumed in 
 that country is the product of Canadian forests. 
 Forests must be ^ s repeatedly stated by Dr. Fernow and Mr. Leavitt, 
 Recognized as transmuting the wealth-producing possibilities of our 
 forests into permanent actualities requires the gen- 
 eral acceptance of the fundamental principle that the forest is a crop 
 rather than a mine, and that cutting operations on non-agricultural 
 lands must be conducted always with a view to the perpetuation of 
 the forest as such. 
 
 The practice of silviculture is still in its veriest infancy in 
 Canada, as it is over most of North America. There is still far too 
 strong a tendency toward the practice of forestry anywhere except 
 in the woods. At the same time, it must always be realized that 
 forestry is essentially a business proposition, and that business con- 
 siderations place definite limitations upon what it is feasible to do 
 in the direction of intensive methods. 
 598752
 
 18 
 
 On the other hand, the forest lands of Canada are predominantly 
 Crown lands, and are, therefore, for the most part, the property of 
 the people of the country. It follows that the public interest, from 
 a long-time viewpoint, should govern in determining the conditions 
 under which exploitation should take place. With the present incre ased 
 stumpage values many things in the direction of better management 
 are now becoming economically feasible which would have been out 
 of the question in years past. 
 
 Notwithstanding war conditions, remarkable progress toward 
 better forest conservation has been made during the past year. 
 Mention of these developments may serve to accentuate the respects 
 in which action is still most urgently required. 
 
 NOVA SCOTIA 
 
 Provincial ^ conference, under the auspices of the Canadian 
 
 Forester Forestry Association, was held at Halifax in Decem- 
 
 ber last. The necessity of appointing a Provincial 
 Forester was emphasized by the severe fire losses in Nova Scotia in 
 1918. This appointment was authorized in 1913, and it is hoped 
 that, by a co-operative arrangement with the Agricultural College 
 at Truro, and a small contribution by the lumber interests, it will 
 be made. Improvements in the administration of the fire laws were 
 suggested. 
 
 As nearly all the forest lands in the province are in private 
 ownership, it is highly desirable that an educative compaign be 
 carried on, urging forest fire prevention. In addition to this campaign, 
 the Provincial Forester, by co-operating with the Dominion Railway 
 Commission, could render very valuable assistance in preventing 
 fires along railway lines in the province. 
 
 NEW BRUNSWICK 
 
 The most important development has been the enactment 
 of legislation respecting forestry and forest fires. The Provincial 
 Forester is now charged with forest protection, forest surveys, land 
 classification, enforcement of cutting regulations, scaling timber 
 and enforcement of fish and game laws, thus giving him more compre- 
 hensive powers than any other forestry official in Canada. 
 
 The adoption of the merit system of appointment 
 in Forest Service * * ne F res t Service, under civil service restrictions, 
 
 ensures the high degree of efficiency that the Com- 
 mission of Conservation has steadily advocated since its inception. 
 
 The timber sales policy with reference to limited areas of timber 
 has been adopted. This system is also in operation in British
 
 19 
 
 Columbia for timber areas of limited extent and for all areas in 
 Dominion forest reserves. The 400 square miles disposed of on the 
 timber sales basis last year yielded from $5.50 to $7.75 per M., 
 as compared with an average of less than $3 for spruce, under the old 
 system. 
 
 In 1918, forest surveys and land classification of 
 
 Forest Survey 465,000 acres were completed; the total area thus 
 
 and Land 
 
 Classification examined to date is 1,665,000 acres, or 22-2 per 
 
 cent of the Crown lands. The cost last year was 
 slightly over 3 cents per acre. 
 
 QUEBEC 
 
 The field of operations of the Provincial Forest Service has 
 been much increased by the addition of the administration of fire 
 protection, including the railway fire protection work. 
 
 It is gratifying to note that approximately 80 per 
 
 Work of cent O f t h e licensed timber lands of Quebec is 
 
 Fire Protection *-" . -r. 
 
 Associations protected by the St. Maurice Valley, Ottawa River, 
 
 Laurentian and Southern St. Lawrence Forest 
 Protective Associations. The efficiency of their work has steadily 
 increased, through improved personnel, education of the local 
 public, increased use of modern equipment, and improved means of 
 transportation. 
 
 Legislation to compel fire patrol on unprotected licensed lands 
 is contemplated. Lack of adequate patrol on lands within association 
 territory but not held by members ofan association, constitutes 
 a danger to surrounding territory. 
 
 The Provincial Forest Service has established a fire-ranging 
 system in the Abitibi district, along the Transcontinental railway, 
 west of Parent, and north of the territory of the Ottawa River Asso- 
 ciation. In this area, 18,500 acres of settlers' slashings were burned 
 under permit, with no loss of green timber. 
 
 ONTARIO 
 
 During 1918, a maximum number of 1,044 fire rangers were 
 employed. They were directed by 32 district chiefs, assisted by 
 41 deputy chiefs. There are four inspection districts, with head- 
 quarters at Cochrane, Nipigon, Sudbury and Parry Sound, under 
 the general supervision of the general superintendent of fire protection 
 at Sudbury, the whole organization being directed by Mr. Zavitz, 
 Provincial Forester, Toronto. 
 59875 2*
 
 20 
 
 Of the 30,172 acres burned during 1918, 60-5 per cent was 
 logged-over land, containing hazardous slash, indicating the urgency 
 of the disposal of logging slash. 
 
 For settlers' clearing fires, principally, 9,590 permits 
 
 were issued durin S 1918 ~ an increase of 175 per 
 
 cent over 1917. The fire-fighting equipment was 
 materially strengthened, and 304 miles of trail was constructed. 
 One-fourth of the forest revenue from the Crown lands of the 
 province $500,000 was appropriated for the work of the Forest 
 Branch. 
 
 A Civil Service Commissioner has been appointed in Ontario. 
 As, however, his authority only extends to employees receiving 
 $1,000 per annum and upwards, he has no control over fire-rangers 
 who are employed for the summer only. As the regulations in effect 
 in New Brunswick, British Columbia and in the Federal Forest 
 Service include fire rangers, it is hoped that the Ontario law will be 
 amended to cover such employees. 
 
 To perpetuate the forest through wise use, super- 
 Supervision over v i s i on over cutting operations on all Crown lands 
 
 should be placed under the Provincial Forestry 
 Branch. Similar action has been taken in New Brunswick, 
 Quebec, British Columbia and in the Dominion forest reserves, 
 exclusive of licensed lands. In the United States the Forest Service 
 is in full charge of cutting operations on 160,000,000 acres of National 
 forests. Leaving technical work of this nature in non-technical 
 hands means, simply, that the forests are administered for im- 
 mediate revenue only, and that their perpetuation receives little, 
 if any, consideration. 
 
 DOMINION LANDS 
 
 The most important development has been the 
 Patronage abolition of the patronage system. Both field and 
 
 office staffs of the Dominion Forestry Branch are 
 now under the merit system of appointment, and governed by 
 Civil Service regulations. This very important reform has been 
 steadily advocated by the Commission of Conservation for years 
 past, and nothing but increased efficiency and economy can result 
 from it. 
 
 Improved forest fire legislation is now in effect 
 
 M*52i?L in Manitoba and Saskatchewan. It is hoped that 
 Legislation Re- ..... , 
 
 quires Revision Alberta will also revise its legislation to make it 
 
 more applicable to the northern portion of the 
 province. The introduction of the permit system of regulating 
 settlers' clearing fires is necessary to prevent serious damage to
 
 21 
 
 the forests. Revision of the Prairie Fires Ordinance along lines 
 advocated by this Commission is also anticipated. 
 
 Representations have been made to the Government of Alberta* 
 respecting its provincially-chartered railways, aggregating some 350 
 miles, which are not under the jurisdiction of the Dominion Railway 
 Commission, nor is there adequate provincial legislation respecting 
 railway fire prevention and protection. 
 
 We have again to deplore the anomaly whereby the Dominion 
 Forestry Branch, with its staff of trained foresters, has no control 
 over cutting of timber on licensed lands in the forest reserves. 
 
 * Since the annual meeting, the Legislative Assembly of Alberta has taken 
 action along the lines suggested. By the Statute Law Amendment Act (Bill No. 
 63 of 1919), effective May 17, 1919, Alberta has, partly as a result of representa- 
 tions made by the Commission of Conservation since the date of the annual meeting, 
 taken partial action with respect to the recommendations submitted by the Com- 
 mittee on Forests. Section 17 of said Act (amending the Railway Act) authorizes 
 the Board of Public Utility Commissioners of Alberta to make regulations with 
 respect to the use of fire-protective appliances on locomotives on provincially- 
 chartered railways. Section 19 (amending the Prairie Fires Ordinance) authorizes 
 the Chief Fire and Game Guardian of the province to make regulations with regard 
 to fireguards and the use thereof by railway companies, and as to the patrol of any 
 line of railway and neighbouring land. Action with respect to the permit system 
 of regulating settlers' clearing fires still remains for the future. 
 
 The portions of Bill No. 63 of 1919, above referred to, are as follows: 
 
 "An Act to amend The Factories Act, The Liquor Act, The Soldiers' Home Tax 
 Exemption Act, and certain other Acts and Ordinances." 
 (Assented to April 17th, 1919.) 
 
 17. THE RAILWAY ACT, being chapter 8 of the Statutes of Alberta, 1907, is 
 amended as follows: 
 
 3. Section 2: By adding thereto the following new clause: 
 
 " 23. ' Board ' shall mean the Board of Public Utility Commissioners." 
 7. Section 192: By adding to subsection 4 thereof the following; 
 
 " The Board may make regulations with respect to the use on any engine 
 of nettings, screens, grates, and other devices which may be deemed by the 
 Board necessary and most suitable to prevent, as far as possible, fires from 
 being started, or occurring upon, along, or near the right of way of any railway 
 subject to the provisions of this Act." 
 
 19. THE PRAIRIE FIRES ORDINANCE, being chapter 87 of the Consolidated 
 Ordinances of the Territories, 1898, is hereby amended by adding as section llo 
 the following: 
 
 " lie. The Chief Fire and Game Guardian may make regulations with 
 regard to fireguards and the use thereof by railway companies, and as to the 
 patrol of any line of railway and neighbouring land. Such regulations shall, 
 unless the Lieutenant Governor in Council shall otherwise direct, conform, as 
 nearly as the circumstances of the case permit, to the regulations issued by the 
 Railway Board of Canada with respect to the same subject matter."
 
 22 
 
 BRITISH COLUMBIA 
 
 Wood Products Th e timber-testing laboratory, recommended by us 
 Established in 1916 and 1917, has been established under a 
 
 co-operative arrangement between the Dominion 
 Forestry Branch, the Imperial Munitions Board, and the University 
 of British Columbia. Attention has been devoted to war work, 
 principally timber for aeroplane manufacture. It is understood that 
 future work will be supplementary to that of the Forest Products 
 Laboratories at Montreal, particular attention being given to local 
 problems of wood utilization. 
 
 Last spring a forest-ranger course for returned soldiers was 
 inaugurated at Vancouver. This winter an extended course will be 
 given. 
 
 The Provincial Forest Branch secured a hydroplane for patrol 
 work in the Coast district, but, unfortunately, it was wrecked before 
 it was available for use in the field. The branch is using light auto- 
 mobiles and gasolene launches in patrol work, with excellent results. 
 
 AIRCRAFT FOR FORESTRY WORK 
 
 The tremendous development of aircraft during the war, and the 
 impending disbandment of our very efficient air force, has directed 
 attention to the possible uses of air machines in times of peace. 
 
 Among other suggested uses are forest-fire patrol and photo- 
 graphy. It is anticipated that during the coming season, hydroplane 
 fire patrols will be established by the British Columbia Forest Branch , 
 by the St. Maurice,* and, possibly, by other forest protective asso- 
 ciations. 
 Aerial For aerial photography the maximum of result could 
 
 Photography probably be obtained in connection with work in 
 for Survey Work 
 
 our northern territories, where the canoe constitutes 
 
 practically the only means of transportation. Airmen, in conjunction 
 with a surveying party, operating along canoe-routes, could obtain 
 valuable information respecting the country on both side of the routes 
 traversed by the surveyors, particularly as such areas are often prac- 
 tically inaccessible by land except at a disproportionate cost of time, 
 money, and energy. 
 
 If such aerial work is to be carried out, the services of our dis- 
 banded airmen should be procured, and the value of such work deter- 
 mined by experiment. If not carried out on too large a scale, the cost 
 would not be excessive. 
 
 The Toronto Globe, April 30, 1919, states that the St. Maurice Association "has made 
 an arrangement whereby two hydroplanes will start on the task of patrol work of their forests by 
 June 1st."
 
 23 
 
 RAILWAY FIRE PROTECTION 
 
 National Railway Though the Canadian Northern system has been 
 Railway absorbed by the Canadian Government railways, its 
 
 Commission lines are still subject to the Railway Commission. 
 
 It is understood that, during next session of Parliament, legislation 
 will be had which will place the Transcontinental, Intercolonial and 
 Prince Edward Island railways under that Commission.* Such action 
 would increase the railway mileage under the jurisdiction of the 
 Railway Commission from 85 per cent, as at present, to 96 per cent. 
 Notwithstanding conditions created by the war, fire losses due to 
 railway agencies have remained satisfactorily low, with some local 
 exceptions. 
 
 As it is a reform the Commission has steadily advocated since 
 its very inception, members of the Commission will be pleased to 
 hear that this legislation is at last to be had. 
 
 WHITE PINE BLISTER RUST 
 
 This disease has a firm foothold in Ontario south of lake 
 Nipissing, and, in Quebec, it has been found on the currant and goose- 
 berry. Controlling the disease involves the eradication of wild and 
 cultivated currants and gooseberries in and near the region to be 
 protected. 
 
 _ . To protect the white pine of British Columbia, an 
 
 Protection in 
 
 British Columbia order in council should be passed prohibiting the 
 
 transportation of currant or gooseberry plants or 
 other Ribes from infected districts into the Prairie Provinces or 
 British Columbia. Such shipments from the Eastern States to the 
 Western States have been embargoed by the United States Govern- 
 ment, and similar action by Canada is necessary, particularly as the 
 effect on the nursery business is negligible. 
 
 The very serious injury to our forests from fungous 
 
 Fungous 
 
 Diseases and other diseases urgently demands the appointment 
 
 of a forest pathologist to study such diseases in co- 
 operation with the Division of Forest Insects of the Dominion Ento- 
 mological Branch. Investigation has shown that logging slash con- 
 stitutes a breeding ground for destructive insects and fungi, and that 
 the losses due to such insects and fungi are very much greater than 
 the losses by fire. 
 
 Since the foregoing was written. Bill 70. "An Act to incorporate Canadian National 
 Railway Company and respecting Canadian National Railways", has been assented to. Section 14 
 of Bill 70 provides that: 
 
 "Notwithstanding anything in the Government Railways Act or any other Act, the provisions 
 of the Rail-way Act respecting the operation of a railway (as distinguished from the provisions of such 
 Act respecting the construction or maintenance of a railway) shall apply to such of the Canadian 
 Government Railways as would but for the passing of this Act be subject to the Gorernment Railways 
 Act, during such time as the operation and management thereof is entrusted to the Company under 
 the provisions of this Act."
 
 24 
 
 In this connection also we desire to acknowledge our indebtedness 
 for the assistance we have received through the able co-operation 
 of Dr. C. Gordon Hewitt, Dominion Entomologist, and of Mr. J.M. 
 Swaine, Chief, Division of Forest Insects, Entomological Branch. 
 
 FOREST PLANTING 
 
 The large areas of non-agricultural lands that have been com- 
 pletely denuded of forests by unwise methods of cutting, or by fire, 
 can only be restored to productivity, in a reasonable length of time, 
 by planting. 
 
 Forest Planting * n Q ueDec > the Laurentide Company and the Riordon 
 by Pulp Pulp and Paper Company have realized that Nature, 
 
 if unaided, makes very slow progress toward restoring 
 the pulpwood species on cut-over lands. To date, the Laurentide 
 Company has planted 680,000 trees, mostly spruce, on 453 acres. 
 The company expects to plant 500,000 in 1919, 700,000 in 1920, 
 and 1,000,000 in 1921. The Riordon Company has planted 780 
 acres to spruce and pine. From 1920, the company expects to plant 
 1,000,000 spruce and 100,000 white and red pine per annum. 
 
 In 1918, the Quebec Government nursery at Berthierville supplied 
 2,000,000 trees to private land-owners, mostly farmers and pulp 
 companies. The capacity of this nursery is to be increased to 
 5,000,000 trees per annum. 
 
 REPORTS AND FIELD WORK 
 
 The report on the Forest Resources of British Columbia, by Dr. 
 Whitford and Mr. Craig, is now in the hands of the binder, and will be 
 ready for distribution ait an early date. Like atll other publications, 
 it has been much delayed by the labour shortage caused by the war. 
 
 The report on the Forest Resources of Saskatchewan has been 
 delayed by the illness of the author, Mr. J. C. Blumer. Though 
 Mr. Blumer has not been restored to complete health, he is making such 
 progress that we hope to receive the final instalments of manuscript 
 at an early date. 
 
 Surv of ^ e surve y f tne f res t resources of Ontario has 
 
 Ontario Forests been suspended, owing to the transfer of Mr. Craig 
 to the Ministry of Munitions, to take charge of the 
 inspection of aeroplane spruce lumber in British Columbia. Mr. Craig 
 will return to the Commission at an early date, and will take up the 
 collection and correlation of data respecting the forests of Ontario.
 
 25 
 FOREST RESEARCH 
 
 As this question is to be discussed by Dr. Howe, my reference 
 to this investigation will be brief. Our research work in co-operation 
 with the Laurentide and Riordon companies, and with the Dominion 
 Entomological Branch, has been continued under the direction of 
 Dr. C. D. Howe. 
 
 . ,, . Dr. Howe is making a careful study of the reproduc- 
 
 St. Maurice 
 Valley tion and growth of the pulpwood species in the St. 
 
 Maurice valley, Quebec. As he finds that present 
 methods of cutting in Eastern Canada are destructive and that there 
 is no adequate provision for the future, he is endeavouring to ascertain 
 what modifications of cutting methods are necessary to secure adequate 
 reproduction and growth. Unless checked, the increasing predom- 
 inance of the hardwood in the mixed forests will, eventually, eliminate 
 the spruce and balsam as commercial species. Apparently, logging 
 the hardwoods as well as the conifers is the only solution of the 
 problem. 
 
 Dr. Howe's investigations show that, under the cover of hard- 
 woods, the average 4-inch balsam in the St. Maurice valley is 55 
 years old, the average 8-inch tree is 70 years old, and it was 80 years 
 old at 10 inches in diameter, breast high. At 4 inches in diameter, the 
 average red spruce was found to be 80 years old; at 8 inches, 120 
 years old, and at 12 inches, 165 years old. 
 
 The crucial point is Dr. Howe's statement that our 
 Lessons from \ 
 
 Growth Studies growth studies, so far as they have been made, 
 
 indicate that, with the exception of the white birch- 
 balsam type, the trees of the smaller diameter classes grow so slowly 
 that they cannot be depended upon to reach commercial size during 
 a period within which the lumberman can afford to hold his limits. 
 More data must, of course, be obtained before we can say that this 
 conclusion has been carried to a demonstration. 
 
 It is not too much to say that this investigation of our pulpwood 
 resources which we trust will determine the measures necessary to 
 ensure their perpetuation is one of the most important questions 
 now in progress by the Commission or any other governmental 
 organisation, and we can congratulate ourselves upon being the 
 pioneers in this matter, inasmuch as we initiated it early in 1917. 
 Work of The value of our investigations has been recognized 
 
 Commission by the Pulp and Paper Association, as well as by 
 
 financial contributions from the Laurentide and Rior- 
 don companies. The Abitibi Power and Pulp Co. has also discussed 
 the possibility of a similar co-operative arrangement respecting inves-
 
 26 
 
 tigation of conditions on its limits, and it is not improbable that 
 this work will also be undertaken. As the tree species on the Abitibi 
 Company's limits differ materially from those on the Laurentide and 
 Riordon areas, such investigation would yield results of much value 
 with reference to that type of forest.* 
 
 That means that we shall be able to extend our investigations 
 into that portion of Ontario lying to the north of the heigh t-of-land. 
 
 AEROPLANE LUMBER PRODUCTION 
 
 Prior to the entry of the United States into the war, large amounts 
 of Sitka spruce for aeroplane manufacture were purchased from 
 United States brokers, nearly all of which was obtained from the 
 forests of Washington and Oregon. In 1917, the requirements of the 
 aeroplane factories of the United States reduced the spruce avail- 
 able for export to an amount that jeopardized the air programme 
 of the Allies, and the Imperial Munitions Board in Canada was 
 requested to secure 24,000,000 feet of aeroplane lumber. 
 
 In connection with our report on the Forest Resources 
 Supplies of /.T...TX-.IT- i 11 
 
 Sitka Spruce of British Columbia, we had procured data which 
 showed that there was, in that province, 14,165,345,000 
 board feet of Sitka spruce, of which approximately 34 per cent was 
 in the Queen Charlotte islands and 31 per cent on the Northern 
 Mainland coast. Most of this information was based upon confi- 
 dential data but, by loaning our Forest Engineer, Mr. R. W. Craig, 
 to the Munitions Board, these data were made available without 
 breach of confidence.! 
 
 Owing to the rigid specifications, particularly as regards straight- 
 grained wood, only a small percentage of the lumber which could 
 be used for ordinary purposes was suitable for aircraft. In addition, 
 practically all the available timber had been alienated, the owners 
 were not prepared to operate their limits and the saw-mill capacity 
 in northern British Columbia the area which contained 65 per cent 
 of the Sitka spruce was inadequate. 
 
 *Since the above was written, the following telegram has been received from 
 the Abitibi Pulp and Paper Company: 
 
 "It is our intention to begin a reforestry programme this year along the lines 
 discussed with you here and desire co-operation of your department." 
 
 fUnder date March 20, 1919, Brig. Gen. W. E. Edwards, Director of Inspec- 
 tion, Imperial Ministry of Munitions, wrote that, owing to the termination of the 
 war, Mr. Craig would shortly be able to return to the Commission. Gen. Edwards 
 added: 
 
 "I desire to express my obligation to your Commission for the loan of Mr. 
 Craig's services. He has filled a difficult position, in which his expert knowledge 
 has been invaluable, with great credit"
 
 27 
 
 Cutting rights were granted by order in council, mills that had 
 been closed were re-opened, new mills were erected, and tugs, gasolene 
 launches, scows and barges were chartered to transport the lumber. 
 The production of spruce increased from 116,000 
 board feet in January, 1918, to 6,850,000 feet in 
 December; the production of Douglas fir increased 
 from 209,000 feet in January to 1,382,000 feet in December. 
 Total production in 1918: Spruce, 26,124,000 feet; fir, 9,224,000 
 feet. 
 
 Owing to the shortage of spruce, Douglas fir was used for 
 wing-beam stock. It was selected from commercial stock at the 
 mills, the recovery averaging only two per cent. 
 
 Best Timber The su Pply f Sitka spruce for aeroplane manufacture 
 from the is so limited that it is estimated that cutting, on a 
 
 war basis, for another year, would have practically 
 exhausted all the wood that is procurable at a reasonable expendi- 
 ture of money and effort. Obviously, steps should be taken to 
 conserve the remaining supplies of this material. Cutting it for 
 pulp or commercial lumber should be prohibited. Only the large 
 trees contain the clear, fine-grained lumber required. Most of the 
 aeroplane material was obtained from trees 500 to 800 years old, 
 and such trees cannot be replaced for centuries, if ever. 
 
 LANDS 
 
 Our work in connection with the Committee on Lands has 
 included: (1) The continuation of the illustration work in Dundas 
 county, and (2) general publicity work. 
 
 ILLUSTRATION COUNTY WORK 
 
 During 1918, the work on the 16 farms in Dundas county, 
 where better farming methods are being practised, included the 
 following : 
 
 1. System and methods of farming, embracing planning, crop 
 rotation, seed and variety selection, tests of different thicknesses 
 of clover seeding, tillage, live stock and manure. 
 
 2. Labour, machinery and equipment. 
 
 3. Business methods selling, buying, co-operation. 
 
 4. Educational work schools, clubs, school fairs. 
 
 At our First Annual Meeting the late Mr. C. C. James 
 Fanner sa ^ t ^ iat tne solution of the problem of better agricul- 
 
 ture was not the taking of the farmer to the experi- 
 mental farm but the taking of the experimental farm to the farmer. 
 The latter was the policy adopted by us in initiating illustration
 
 28 
 
 farms in each province. Later, we transferred these farms to the 
 Dominion Department of Agriculture, that they might be extended 
 and carried on on a much larger scale than our limited financial 
 resources would permit. 
 
 In Dundas county which was selected as being 
 a typic^ area > an< * Gas ^Y accessible from Ottawa 
 we have 16 illustration farms in the four townships 
 which constitute the county. We can now see the results of 
 work done on our advice, such as the effect of adding lime to the 
 land prior to growing clover, results from thick seeding and from 
 thin seeding of clover seed, from the use of certain varieties of seed, 
 particularly of barley, oats, potatoes and corn. For instance, we 
 demonstrated that seeding with potatoes grown in Northern Ontario 
 or New Brunswick increased the yield by from 15 to 100 per cent 
 as compared with potatoes grown from southern Ontario seed. 
 
 Our Agriculturist. Mr. F. C. Nunnick, has held numerous 
 meetings on our illustration farms in Dundas county, all of which 
 have been well attended. The large numbers of farmers at these 
 meetings, and the interest shown by the questions and discussions, 
 demonstrate, if demonstration were needed, the great value of our 
 work in this area. 
 
 Unfortunately, the excessively wet weather experienced in 
 Eastern Ontario last autumn prevented the harvesting of many 
 fields of corn and potatoes, the crops rotting in the ground. 
 
 Advice respecting greater use of agricultural 
 Account 8 Book machinery and of labour-saving devices has resulted 
 in much greater use of these highly efficient aids to 
 agriculture. During the year a Farmer's Account Book was pub- 
 lished. It is exceedingly simple and has been in great demand, 
 particularly in Manitoba, Saskatchewan and Alberta. Other farmers' 
 account books have been published from time to time, but have 
 failed because they were too complicated to secure adoption by the 
 average farmer. 
 
 Our Agriculturist has given addresses at numerous points 
 throughout Canada. At the fair at Winchester, Dundas county, 
 the Commission had a tent containing an educational exhibit of crops 
 grown on the illustration farms and an automatic projector showing 
 results obtained by improved agricultural practice.
 
 29 
 WATERS AND WATER-POWERS 
 
 During the year the shortage of electric energy for power pur- 
 poses in southwestern Ontario continued to affect production. It 
 curtailed natural growth ; a number of new enterprises which desired 
 to obtain power were unable to do so, and municipalities receiving 
 energy from the Niagara system of the Hydro- feptric Power Com- 
 mission were required to reduce their consumpt, *vby from 15 to 30 
 per cent of their maximum demands in December ^917. Though the 
 cessation of the manufacture of munitions will release some 30,000 to 
 40,000 h.p., this power will be absorbed by the municipalities and by 
 power-users whose demands have been curtailed. 
 
 All the water at Niagara Falls allotted to Canada 
 Developments and the United States under the Boundary Waters 
 
 Treaty 56,000 cub. ft. per sec. has now been 
 apportioned to the various development companies. Certain inter- 
 ests are now urging that the treaty be amended to permit the diver- 
 sion of a larger quantity of water, one proposal being that each 
 country be permitted to divert 60,000 cubic feet, or 120,000 cubic 
 feet in all. 
 
 SENATOR EDWARDS: How much power would that be altogether? 
 Mr. WHITE: It depends very much upon the head under which 
 it is utilized: at the present time, 56,000 second-feet is developing 
 about 650,000 horse-power; 120,000 cubic feet per second would 
 yield about 1 ,400,000 horse-power, if only the head at the falls were 
 utilized. If it were developed on the same plan as the Chippawa, and 
 operated under a head of 305 feet, the proposed total diversion of 
 120,000 second-feet would yield approximately 3,600,000 h.p. Of 
 course, these are calculations that I am making off-hand. However, 
 it is not necessary to divert any more water to double the power 
 output at Niagara Falls, because, if adequate power is not obtained 
 by means of the present diversion, it can practically be doubled by 
 utilizing the water in the same way as the Ontario Hydro-Electric in 
 their Chippawa-Queenston development, namely, by using the 
 descent in the rapids above and below the falls as well as the fall in 
 the cataract itself. 
 
 The Chippawa-Queenston development of the Hydro- 
 Extension 6 Electric, referred to above, will consist of 6 units of 
 
 50,000 h.p. each, or 300,000 h.p. in all, operating 
 under a net effective head of 305 feet. In other words, the output of 
 the Chippawa plant will be equivalent to 80 per cent of the present 
 output of all the plants on the United States side of Niagara Falls. 
 It will use 10,000 cubic feet per second, conveyed through 4| miles of
 
 30 
 
 canalized river and 8$ miles of excavated canal. The estimated cost 
 is $25,000,000, and it is hoped that it will be completed in 1921. 
 
 On the United States side of the river the Hydraulic Power and 
 Manufacturing Co., Niagara Falls Power Co., and the Cliff Distribut- 
 ing Co. have been consolidated. The consolidated company has a 
 present capacity of 370,000 h.p., and an extension, to be completed 
 this year, vrill contain three units of 33,000 h.p. each, an additional 
 capacity of 100,000 h.p. 
 
 The most important water conservation work now 
 Conservation under construction in Ontario is the International 
 Dam Nickel Co.'s Big Eddy conservation dam on the 
 
 Spanish river, in Algoma district. This dam will raise the level 
 of the river 100 feet, and will create a lake with an area of 15 
 square miles. Combined with the storage in the upper third of the 
 Spanish River watershed, it will increase the minimum flow to over 
 1,800 cubic feet per second, or almost three times the natural low- 
 water flow, namely, 675 cubic feet per second. It will also create a 
 power site, where 15,000 h.p. can be continuously developed. 
 
 The engineer who designed this work, Mr. Henry Holgate, 
 states that: 
 
 "When this work is complete, the waters of the Spanish river 
 above the township of Hyman will be conserved to their full extent, 
 and this will be one of the most complete systems of water conserva- 
 tion in Canada. 
 
 "Conserving water, and regulating flow on our streams, is one 
 of the most important subjects we have before us, and merits the 
 co-operation and assistance of the Government, as it should be a 
 cardinal principle in power development that the full efficiency 
 of the water in the watershed be made use of, and this cannot be 
 done unless carefully considered systems of storage are provided, 
 so as to equalize the flow as nearly as possible throughout all seasons 
 of the year." 
 
 ST. LAWRENCE RIVER 
 
 Private Last year, the St. Lawrence River Power Co., a sub- 
 
 Development in sidiary of the Aluminum Company of America, 
 constructed extensive works in the bed of the St. 
 Lawrence river, although such action was in defiance of the terms oi 
 the Ashburton Treaty. This action was taken under permit from the 
 United States War Department, but without obtaining the necessary 
 consent from the Government of Canada. Subsequently, the com- 
 pany applied to the International Joint Commission for authority 
 to erect as an essential part of these structures a submerged weir 
 in the South Sault channel of the St. Lawrence, a short distance 
 below the works above referred to, and asked for immediate con- 
 sideration of the application as a ' war measure.'
 
 31 
 
 The St. Lawrence Power Co. contended that, during 
 
 Anchor Ice t h e winter of 1917-18, ice difficulties in the canal lead- 
 
 Reduces Output 
 
 ing to its plant at Massena, IM.Y., had reduced the 
 
 output of aluminium by 7,000,000 Ibs. ; that there was urgent need 
 of this metal for war purposes, and that the United States Gov- 
 ernment was pressing them to increase their production. At the 
 same time, the cross-examination elicited the information that the 
 construction of this dam would increase the available power at 
 their Massena plant from its present maximum of 73,000 h.p. to 
 200,000 h.p. As the company estimated the cost of the dam and 
 appurtenant works at only $350,000, this application, if granted, 
 would be an enormously valuable concession. 
 
 Hon. Hugh Guthrie,* Solicitor General, opposed the application 
 on behalf of Canada. He demonstrated that, under the terms of 
 Article VII of the Ashburton Treaty, which provides that all channels 
 on both sides of Croil, Long Sault, and Barnhart islands shall be 
 kept " equally free and open," the International Joint Commission 
 had no jurisdiction unless and until the consent of the Government 
 of Canada had been obtained. The Commission of Conservation, 
 Canadian shipping interests, and other organizations urged most 
 strongly that no proprietorial rights whatsoever be granted to the 
 applicant company, but that all works placed in the St. Lawrence 
 be constructed by Canada and the United States jointly. This 
 action was in conformity with the policy adopted by the Commission 
 of Conservation from its inception, namely, steady opposition to the 
 granting of control of the St. Lawrence to private interests. 
 
 Eventually, the International Joint Commission 
 ^ mt . . gave decision, f stating that, although they were un- 
 
 Consents certain respecting the question of their jurisdiction 
 
 as affected by the Ashburton Treaty, they were granting the right 
 to erect and maintain the dam for the duration of the war or for 
 five years, whichever term should be longer. 
 
 For all practical purposes, the Aluminum Company of America 
 was the applicant for this highly valuable privilege, and, therefore, a 
 brief reference to this corporation may be of interest. This company! 
 absolutely controls the manufacture of all aluminium** in North 
 
 Hon. Mr. Guthrie's address is such a complete and convincing statement on behalf of Canada's 
 rights and claims that it has been printed in Appendix III. See p. 65. 
 
 tThe Decision is printed as Appendix IV, p. 81. 
 
 \The Mineral Industry during 1917, pp. 12-13, states that, commencing with a capitalization 
 of $1,000,000 in 1889, it now has an authorized capitalization of $20,000,000, on which it paid a 
 dividend of 10 percent in 1916; that "the company has invested about $70,000,000 of undivided 
 profits in its business; its present investment in plant is about $80,000,000. The market value 
 of its $20,000,000 stock is probably $150,000,000." 
 
 "For further data respecting aluminium, see Appendix I, p. 51. 
 
 \
 
 32 
 
 America. According to the statement of its president at Montreal in 
 August last, the company's plants have the following capacities: 
 
 Niagara Falls, N.Y 35,000,000 Ibs. 
 
 Maryville, Tenn 25,000,000 
 
 Badin, N.C *20,000,000 
 
 Massena, N.Y 58,000,000 
 
 Total capacity of United States plants 1138,000,000 
 
 Shawinigan Falls, Que J20.000.000 
 
 Total capacity, Canada and United States. . 158,000,000 " 
 
 A table published in the New York Electrical World states that, 
 in April, 1914, there were 54 transmission systems in the world 
 operating at and above 70,000 volts. Of the 27 systems in the 
 United States, only 5 were using aluminium conductors, as compared 
 with 22 using copper. In Canada, 4 systems were using aluminium 
 and 1 using copper. Our report on Electric Generation in Canada 
 shows that the aluminium transmission lines of 10,000 volts and over, in 
 Canada, aggregate 13,000 wire-miles, as compared with 8,000 wire- 
 miles of copper. 
 
 During 1918, the New York and Ontario Power Co. 
 St. Lawrence applied to the International Joint Commission for 
 
 authority to erect a dam in the Little channel of the 
 St. Lawrence river, near Waddington, N.Y., and to make improve- 
 ments which would increase the present flow through said channel. 
 This application is still pending. 
 
 These and numerous other problems, such as the increased 
 diversion of water at Chicago, national saving of fuel by restrictions 
 and economies, saving of power and light in factories, the elimination 
 of uneconomical plants and processes, standardization, the growth of 
 co-ordination of power production have been under consideration 
 during the past year and will be covered by the address of our Con- 
 sulting Engineer, Mr. Arthur V. White. 
 
 g The subject of water-power development is receiving 
 
 Steam Turbines much attention at the present time, particularly in 
 the United States, where 76 per cent of the total 
 power is generated by steam prime movers. Steam also generates 
 72-5 per cent of the power in electric generating stations. Data for 
 Canada respecting total power generated are not available, but our 
 
 'Mineral Industry, p, 12. states that the plant at Badin "was largely increased in June, 1917 
 and has run at full capacity ever since. Its capacity has been stated to be 65,000 k.w., capable of 
 furnishing 23,000 [metric] tons (50,600,000 Ibs.] of metal annually." 
 
 ^Mineral Industry, p. 13, estimates the production in the United States in 1917 at 200,000,000 
 Ibs. 
 
 {According to Mineral Industry, p. 14, the Canadian exports of aluminium in ingots and bars 
 were "22,324,600 Ibs., valued at $7,620,953, or 34-1 cts. perlb. The production was greater than 
 
 this by about 3,500,000 Ibs.," making the production at Shawinigan about 26,000,000 Ibs. 
 
 which is equal to 11,800 metric tons.
 
 33 
 
 recent investigations show that, in the Dominion, only 13-7 per cent 
 of the power in central electric stations is generated by steam. That 
 steam has been able to hold its own in the United States, in spite of 
 the high efficiency of water-power, is largely due to the extraordinary 
 success of steam turbines. 
 
 On the other hand, owing to war conditions, the price of labour 
 has increased enormously. As pointed out by Mr. Julian C. Smith, 
 Vice President and Chief Engineer, Shawinigan Water and Power Co., 
 "the effect on the cost of power from existing steam plants, as com- 
 pared with existing water-powers, has been to practically double the 
 cost of power from steam plants and to only slightly change the cost 
 of power from the water-power plant previously built."* 
 
 Mr. Smith also states that the capital cost of a water-power plant 
 is twice that of a steam plant and that, if this cost is high because of 
 high labour costs, the water-power plant is "handicapped forever". 
 He concludes that, for many years, steam plants will be of primary 
 importance and water-power plants of secondary importance, but 
 excludes from this dictum the great powers of Niagara and the St. 
 Lawrence which have great inherent and special advantages. 
 
 Messrs. Gilbert and Pogue, Division of Mineral Technology, Uni- 
 ted States National Museum, point out that " when a ton of material 
 passes through a manufacturing plant, it means, with due qualifica- 
 tions, that the railroads have hauled a ton of raw material from far 
 and wide and will move a similar weight of products away for distri- 
 bution, "f They urge that, during stress of industrial expansion, the 
 freight-hauled coal, to be used for the generation of power, may create an 
 impossible situation. If, however, electric energy be transmitted 
 to points where energy alone is required, transportation would be 
 relieved of a burden of coal haulage. 
 
 Hydro-Electric Whether a steam-electric plant be already established 
 versus on a steam-power basis, or whether it be desired to 
 
 expand a service or to establish a new operation, the 
 first cost is low and the chief item of operative expenditure is for 
 fuel, which is unavoidable, but is spread over the years of operation. 
 The legitimate capitalization, therefore, is the cost of erection and 
 equipment of a steam-power plant. 
 
 In a hydro-electric development, however, conditions are re- 
 versed; the great burden falls on the initial cost of development. 
 The interest upon the capital invested in the plant is much the most 
 important item of gross operating expenses. An analysis! by Mr. Gano 
 
 *The Canadian Engineer, Dec. 26, 1918, p. 551. 
 
 \Power: Its Significance and Needs. Bull. 102, Part 5, Smithsonian Institution, 
 p. 10 
 
 ^Proceedings, American Institute of Electrical Engineers, May, 1916, p. 585. 
 598753
 
 34 
 
 Dunn of the gross operating expenses of a typical steam-electric station 
 and hydro-electric station of 20,000 h.p. each, gave the following: 
 In the steam station, coal absorbed 48.9 per cent of the gross 
 operating expenses and bond interest 19.0 per cent, whereas, in the 
 hydro-electric station, bond interest constituted 77.4 per cent of the 
 gross. 
 
 The foregoing does not appear to present an unassailable case in 
 favour of hydro-electric development in the United States, except 
 where an advantageous position with reference to markets and low 
 unit cost present economic advantage. The coal-less provinces of 
 Ontario and Quebec, however, do not present the same basic condi- 
 tions, and the substitution of hydro-electric energy for bituminous 
 coal imported from the United States for the generation of power 
 would justify an expenditure possibly not justifiable upon purely 
 economic grounds. 
 
 In many instances, the centralization of electric 
 Central Electric , . , , 
 
 Plants plants presents economic advantages and economies. 
 
 In Great Britain the Ministry of Reconstruction has 
 reported on a plan of centralizing the production of electric power 
 in Great Britain. There are some 600 private and municipal central 
 plants for power production. The report emphasizes the wastefulness 
 of a " system whereby a man at Hampstead cooks his breakfast by 
 electricity from one station, travels to his office by that from a second, 
 lights his office by that from a third, and takes lunch at a restaurant 
 supplied by a fourth." 
 
 While it is doubtful whether the foregoing could be paralleled 
 in Canada, there are localities where centralization of electric plants 
 would result in substantial economies. 
 
 MINES 
 
 In July last, Mr. W. J. Dick, our Mining Engineer, resigned, to 
 accept a more lucrative position in Winnipeg. Pending the appoint- 
 ment of a successor to Mr. Dick, your Assistant ty Chairman has had 
 to carry on this branch of our work as best he could. In addition, it 
 it is quite evident that we cannot get a competent mining engineer 
 for the salary we were paying Mr. Dick. 
 
 With the exception of gold mining, the mining industry in 
 Canada has been stimulated by the war. The figures of mineral 
 production for the last seven years are as follows: 
 
 1911 $103,220,994 1915 , $137,109,171 
 
 1912 135,048,296 1916 177,201,534 
 
 1913 ; 145,634,812- 1917 189,646,821 
 
 1914 , . 128,863,075 1918 211,301,897* 
 
 *Since the Tenth Annual Meeting, Mr. John McLeish, Chief, Division of 
 Mineral Resources and Statistics, Dept. of Mines, has courteously supplied corrected 
 statistics. The data respecting production have, therefore, been brought up to date.
 
 35 
 
 It should be borne in mind that these great advances in values 
 during the last three years do not represent an equal increase in 
 tonnages, inasmuch as nearly every metal, except gold, has greatly 
 increased in price. 
 
 The production of coal increased in all the provinces 
 Production . 
 
 of Coal except Nova Scotia. The greatest increase was in 
 
 the production of Alberta to meet the deficiency 
 caused by the war and the war measures of the United States Fuel 
 Administration. The amount of United States bituminous coal avail- 
 able was much less than usual. In addition, shipments of anthracite 
 r o Canada were reduced to 77 per cent of the amount actually imported 
 in 1917, although that amount had proved to be inadequate during 
 the excessively cold winter of 1917-18. For Western Canada, the 
 United States Fuel Administration gave instructions that anthracite 
 shipments were to be reduced to 65 per cent of the tonnage usually 
 shipped to Winnipeg and to 50 per cent of the amount normally 
 shipped to the remainder of Manitoba; no anthracite being shipped 
 to points west of Manitoba. The deficiency thus caused by these 
 measures was met by the largely increased shipments of Alberta coal. 
 
 The total production of marketable coal in 1918 was 14,977,926 
 short tons, valued at $55,192,896 the largest tonnage except in 
 1913. The production included 115,405 tons of semi-anthracite, 
 11,636,190 tons of bituminous, and 3,226,331 tons of lignite. 
 
 Production in Aiberta increased to 5,972,816 tons, as compared 
 with 4,736,368 tons in 1917, and 4,014,755 tons in 1913 an increase 
 of nearly 1| million tons as compared with 1917, and of nearly 2 
 million tons as compared with 1913. 
 
 Decline in During the winter of 1917-18 statements were made 
 
 Nova Scotia in the press that it was possible to largely increase 
 
 the production of coal in Nova Scotia. This optim- 
 istic view was not shared by us, and, in February, Mr. Dick was 
 instructed to report on the probable shortage. Mr. Dick, basing his 
 report on confidential information received from the principal mining 
 companies, estimated that Nova Scotia would produce only 5,259,000 
 long tons (5,890,000 short tons), as compared with 7,980,073 short 
 tons in the ' banner ' year, 1913, a decrease of two million tons, or 
 nearly 25 per cent. This estimate was communicated to the Do- 
 minion Government and to the Fuel Controller, Mr. C. A. Magrath. 
 The actual production was 5,195,144 long tons (5,818,562 short 
 tons) practically as stated by Mr. Dick. 
 
 Mr. Hiram Donkin, Inspector of Mines for Nova Scotia, states 
 that the falling off in the production of coal in Nova Scotia was largely 
 due to the decrease in the number of men employed at the coal face ; 
 5987531
 
 36 
 
 many men of this class volunteered for overseas service, and their 
 places were filled by men whose rate of production was somewhat 
 less. 
 
 The tonnage of nickel produced in 1918 was more 
 in Ontario than double that produced in 1914. In 1905 the yield 
 
 was 18,876,315 Ibs.; in 1910 it was 37,271,033 Ibs.; 
 in 1914 it was 45,517,937 Ibs., and in 1918 it was 92,076,034 Ibs., 
 valued at $36,830,414. Three-quarters of the world's production of 
 nickel is mined in Ontario and, with an era of lower prices, the pro- 
 portion is likely to increase rather than decrease. The nickel refining 
 plant of the International Nickel Co., at Port Colborne, Ont., was 
 put into operation in July, 1918. 
 
 Copper Th e production of copper was much stimulated by 
 
 Production , . 
 
 Largely Increased the enormous demand for war purposes, the greater 
 
 portion of this metal being obtained from the large 
 low-grade ores of British Columbia and the nickel-copper mines of 
 Sudbury, Ont. The production in Ontario amounted to 23,524 tons 
 (47,047,801 Ibs.), valued at $11,586,932. The International Nickel 
 Co. and the Mond Nickel Co., combined, produced 23,472 tons, or 
 99 -8 per cent of the Ontario output. British Columbia produced 
 31,429 tons (62,858,628 Ibs.), valued at $15,480,823. In the latter 
 part of 1916, electrolytic refineries for copper and for zinc were put 
 into operation by the Consolidated Mining and Smelting Co. at 
 Trail, B.C. 
 
 The total production of gold in 1918 amounted to 
 Produced 710,526 ozs., valued at $14,687,875, as compared with 
 
 738,831 ozs., valued at $15,272,992 in 1917. The 
 gold production of Ontario was 411,270 ozs., valued at $8,501,705, 
 $247,876 less than in 1917, due to the severe handicap under which 
 producers of this metal are operating. The Hollinger, one of the 
 great gold mines of the world, yielded two-thirds of the Ontario pro- 
 duction, or $5,752,370. 
 
 ,., , The production of silver in 1918 is estimated at 
 
 Silver also 
 
 Shows Decline 21,284,607 ozs., valued at $20,597,540, as against 
 22,221,274 ozs., valued at $18,091,895 in 1917, a 
 decrease of 4-2 per cent in quantity, but an increase of 13-8 per cent 
 in value. Ontario produced 17,109,389 ozs., valued at $16,557,098, or 
 80-4 per cent of the total silver production of Canada. As all but 
 0-3 per cent was produced in the Cobalt district, the dominant 
 position of this area is apparent.
 
 37 
 
 In 1900. during the development in East Kootenay, 
 Lead and Zinc . . J ' 
 
 Feel War Effect lead production in Canada reached its maximum, 
 
 63,169,821 Ibs. It declined to 18,139,283 Ibs. in 
 1903, increased to 56,864,915 Ibs. in 1905, and fell to 23,784,969 Ibs. 
 in 1911. Owing to demands for war purposes, production in 1915 
 increased to 46,316,450 Ibs. In 1918 it was 43,846,260 Ibs., valued 
 at $4,055,779. 
 
 The total production of zinc during 1918 was 16,832 tons 
 (33,663,690 Ibs.), valued at $2,746,620, as compared with 14,834 tons, 
 valued at $2,640,817, in 1917, and 4,551 tons (9,101,460 Ibs.), valued 
 at $474,459, in 1914. 
 
 The production of steel ingots and direct steel castings during 
 1918, was 1,893,000 short tons, as compared with 1,745,734 tons 
 in 1917, and 823,641 tons in 1914. 
 
 During 1918, magnesite from the Grenville district, 
 of Magnesite Se Q ue -> became available for use for furnace linings, 
 thus replacing the mineral heretofore imported 
 from Austria and Greece. It had been assumed that, owing to the 
 high lime content of the Grenville mineral, it could not be used, 
 but the exigencies of war conditions induced experimental work, 
 which demonstrated that, when properly treated, it makes a rammed 
 or burnt-in lining comparable with the best Austrian. The total 
 shipments of magnesite in 1918 aggregated 39,365 tons, valued at 
 $1,016,765, as compared with 58,090 tons, valued at $728,275, in 
 1917, and 358 tons, valued at $2,240, in 1914. 
 
 One of the most important metallurgical advances 
 1S t ^ le development of the manufacture of the ferro- 
 alloys, particularly ferro-silicon. The Electro Metals, 
 Ltd., of Welland, Ont., is the largest electric ferro-alloy industry in 
 the British Empire. This plant has a capacity of 48,000 tons of 50 
 per cent ferro-silicon, and of 25,000 tons per annum of carbon- 
 electrodes. In addition to its use in steel manufacture, ferro-silicon, 
 with 85 per cent silicon content, was in demand for use in the manu- 
 facture of balloon gas. 
 
 The war has demonstrated the enormous value 
 its Products" ^ petroleum and its products, particularly gaso- 
 lene. In the pre-war period, large reserve stocks 
 of petroleum were carried in the United States, but the enor- 
 mously increased demand, coupled with declining production, 
 reduced the amount on hand January 1, 1918, to about 153,000,000 
 bbls., although a storage of about 50,000,000 bbls. is required to fill 
 the pipe lines and keep the industry in operation. At the same 
 time, if consumption of petroleum in the United States were to
 
 38 
 
 continue to increase at the same rate as during 1902-16, the reserves 
 would be exhausted about 1932. Obviously, these reserves will 
 not be exhausted, because increased prices, growing imports and 
 other causes will prolong the life of the wells. 
 
 Gilbert and Pogue state* that from 90 to 30 per cent of the oil 
 is left underground and that, deducting losses by fire, seepage and 
 evaporation, probably less than 25 per cent of the petroleum under- 
 ground reaches the pipe-line. If we subtract from this proportion 
 the losses involved in improper and wasteful methods of utilization, 
 the recovery factor becomes perhaps as low as 10 per cent. 
 
 Of the world's output of petroleum, 66,000,000 tons, the United 
 States contributes 66 per cent, Russia about 13 per cent, Mexico 
 about 11 per cent and the entire British Empire less than 3 per 
 cent (2-7). 
 
 The production of Canada is 25,100 tons, or -04 of 1 per cent, 
 of the world's production of this raw material which is indispensable 
 to the processes of modern manufacture and transportation. 
 
 "To-day it enters into our daily life under the guise of at least 
 250 different and marketable commodities. It lights our lamps and 
 stoves; it cleans our clothes; it prepares our varnishes; it acts as a 
 substitute for turpentine in the printing, dyeing and painting indus- 
 tries; it invades our tables in the form of artificial butters, confec- 
 tionery and a number of other edibles; it supplies us with our wax, 
 our candles, our vaseline, our chewing gum, and a vast array of 
 ointments, salves and drugs; it furnishes the dressing-table with 
 perfumes and the smoking-room with matches; it imparts the final 
 lustre to collars and shirts, and the textile trades use enormous 
 quantities of it for finishing soft goods; it medicates our bodies and 
 gives to preserved fruits their peculiarly toothsome appearance; 
 it blends with animal and vegetable oils in a range of combinations 
 almost infinite ; its residue can be burned as coke or used in the manu- 
 facture of electric arc-lights or employed in road-making as a rival 
 to asphalt; it lubricates our machinery and drives our motor-cars, 
 our ships, our aeroplanes, our locomotives, our ploughs and tractors. 
 By means of it every form of transportation on land, in the air, on the 
 sea and below the sea, has been immeasurably extended and in many 
 instances revolutionized. There must be at least a hundred trades 
 that now use oil for heat and power purposes where ten or fifteen 
 years ago they used nothing but coal."f 
 
 At the London Oil Congress in 1912, it was shown that the 
 Mauretania, for the round trip from Liverpool to New York, by 
 changing from coal to oil would save 5,000 tons of fuel, reduce the 
 stokehold force from 300 to 30 and would make available for cargo 
 
 *Petroleum A Resource Interpretation, Bulletin 102, Part 6, p. 41, Smithsonian 
 Institution, 1918. 
 , p. 41.
 
 39 
 
 and passengers a space of about 100,000 cubic feet, representing 
 an earning value of $50,000 on each round trip. 
 
 Although we have no oil-fields comparable with the Pennsylvania, 
 Texas, Oklahoma and other fields in the United States, the chances 
 of discovering oil in Alberta may properly be described as fair. The 
 production of the Petrolia oil-field, in southwestern Ontario, in 1918, 
 was 288,692 bbls., as compared with 528,959 bbts. in 1908. 
 Economic Since its organization in 1910 the Commission has given 
 
 Utilization special attention to the more efficient utilization of coal, 
 
 the objects aimed at being the use of (1) lignite, 
 either as mined or with the expenditure of the minimum of cost and 
 effort in preparing it for use; (2) the more efficient utilization of 
 coking coal in plants near large markets, producing coke and gas as 
 primary products, and tar, ammonium sulphate, etc., as secondary 
 products; (3) manufacture of carbo-coal; (4) pulverized fuel; (5) car- 
 bonized lignite briquettes. 
 
 _ , . . In Great Britain, the war has emphasized the 
 
 Pulverized Coal . . _ , _ , 
 
 enormous value of certain coals. In the Durham 
 
 field, certain seams contain a coal peculiarly adapted to the manu- 
 facture of a fine hard coke, low in ash and sulphur. The Carbon- 
 ization Committee of Great Britain has recommended that export 
 of this particular quality of coal should be forbidden; that, if 
 there is a sufficiently large reserve of coking coal to meet the demand 
 of the British iron and steel industry, it should only be exported as 
 metallurgical coke that the valuable by-products may be retained 
 for use in the dye and many other valuable domestic industries. 
 Practical difficulties in connection with mining will almost certainly 
 prevent carrying the recommendations into effect, but it is note- 
 worthy as indicating the great value of such coals as a national asset. 
 Economies in ^ ue to t ^ ie shortage of fuel, attention has been 
 Furnace directed to the possibilities of economies in furnace 
 
 operation. In large industrial establishments in the 
 United States, it has not been unusual for expert heating engineers 
 to effect a saving of 20 to 30 per cent of the fuel account. About 
 24,500,000 tons of bituminous and lignite coal is consumed in Canada 
 each year. If our consumption were reduced by only 10 per cent, 
 it would represent an annual saving of at least $7,500,000, much of 
 which is expended for coal imported from the United States. 
 
 The Alliance Power Co. state that, by burning lignite slack, they 
 have succeeded in reducing the coal bill in the Edmonton, Alta., power 
 house from $165,000 a year, to $75,000; also, that, if an automatic 
 stoker were devised which would "respond and evaporate the neces- 
 sary water in the boilers to handle the overload at peak", much 
 better results could be obtained.
 
 40 
 
 Uniform ^ r< ^- ^- Mackie, M.P., Edmonton, is urging that 
 
 Mining Act a Canadian Coal Mining Act be passed by the 
 
 Suggested Dominion, contingent upon the antecedent consent 
 
 of all provinces, the operation of the Act being left to the provinces. 
 Mr. Mackie has requested the Department of Labour to call 
 a conference of the Chief Inspectors of Mines of the various provinces. 
 Whether the provinces would consent or not, there can be no doubt 
 that, as pointed out by Mr. John T. Stirling, Chief Inspector of Mines 
 for Alberta, laws should be identical in, say, British Columbia, 
 Saskatchewan, and Alberta, with provision that the operation of all 
 coal mines in these provinces be under the supervision of persons hold- 
 ing certificates of competency, granted by the authorities of either 
 province. Similarly, this situation should obtain with reference to 
 Nova Scotia and New Brunswick. 
 
 Mr. Stirling further states that there are nearly 300 
 
 Waste in Small , i_ i_ sr\ c 
 
 Mining Operations mmes m operation in Alberta, about 60 per cent of 
 which is operated in such a small way that it is 
 impossible to make them a commercial success. All the coal that is 
 easily accessible, chiefly along the river banks, is mined by driving 
 in a gangway for a few hundred feet from the outcrop, and, owing 
 to the operator's inability, financially, to put in proper supports, these 
 gangways are allowed to cave in after two or three years' operation, 
 with the result that the larger bodies of coal lying beyond these 
 worked areas will require to be obtained in years to come by expensive 
 shaft sinking. 
 
 In addition to this, the danger of driving into old workings which 
 are flooded with water is constantly increasing, so that the chances 
 of catastrophies are also very much increased. 
 
 Reduction in The ^ act *^ at the price of anthracite has steadily 
 Anthracite Prices increased during the past quarter of a century, and 
 the well established fact that, if consumption con- 
 tinued at the present rate, the anthracite of the United Sates would 
 be exhausted in less than a century, demonstrate that the theory of 
 lower prices after the war is utterly fallacious. Even prior to the war, 
 the production of anthracite was decreasing at the rate of approxi- 
 mately one per cent per annum. The problem in Canada, therefore, 
 is : What can be done in the way of producing a fuel that approximates 
 to anthracite or toward the utilization of lignite under more advan- 
 tageous conditions? 
 
 The Research Council has suggested that briquetting of car- 
 bonized lignite furnishes the solution, and the sum of $400,000 has 
 been appropriated for the erection of an experimental plant. Con- 
 struction of this plant has not yet been commenced.
 
 41 
 
 In Great Britain, much attention has been devoted 
 CarbocoaT" to carbocoal, the process yielding a fuel that is denser, 
 
 dustless, clean, uniform in size and quality and stands 
 transportation without disintegration; its density is greater than 
 that of coke and more nearly approaches that of anthracite; the 
 yield of tar and ammonium sulphate is greater than in the by-product 
 coking process. 
 
 Pulverized coal, for certain purposes, has achieved 
 Successful 8 remarkable success, particularly in cement plants, 
 
 copper smelting and other metallurgical processes, 
 and several United States railways have successfully operated loco- 
 motives with this class of fuel. With the exception of the Calgary 
 plant, which uses natural gas, all plants of the Cement Company of 
 Canada are using pulverized coal. It has recently been adopted by 
 the British Columbia sugar refinery, and the International Nickel Co., 
 Copper Cliff, has installed it. Experimental runs in the blast furnaces 
 at Copper Cliff, Ont., showed that not only could pulverized coal 
 replace the more costly coke, but the tonnage of fuel consumed 
 was reduced 30 per cent. 
 
 Substitute for The striking economic advantage of central coking 
 Anthracite plants, producing retort coke for fuel, gas, coal tar, 
 
 ammonium sulphate, etc., has been set forth in 
 earlier reports, and need not be recapitulated. 
 
 The steadily increasing price and the decrease n the reserves of 
 anthracite demonstrate that, in Ontario and Quebec, we must turn 
 to some form of coke that possesses most of the characteristics of this 
 valuable fuel, such, for instance, as carbocoal or retort coke. 
 
 The greatest obstacle to the introduction of retort coke is the 
 fact that, hitherto, practically all coke, except gashouse coke, has been 
 produced for metallurgical purposes and, for obvious reasons, such coke 
 could be most economically produced at or near the mine. The fact 
 that central coking plants, in the immediate vicinity of large cities, 
 can market not only coke but the gas, tar and all other products, 
 demonstrates their great economic advantage. In addition, the fuel 
 produced by a retort coke plant would be better adapted for domes- 
 tic heating, for raising steam and for similar purposes, than 
 metallurgical coke would. 
 
 For large individual consumers, locomotives and certain other 
 uses, pulverized fuel promises to revolutionize present practice. It is 
 almost axiomatic that the less labour and cost expended on the pre- 
 paration of coal fuel, the better, and, other things being equal, the 
 process that approaches most closely to this dictum is the most efficient 
 and the most economic.
 
 42 
 
 A pamphlet on Pulverized Fuel, by Mr. W. J. Dick, is now in the 
 press and will be issued at an early date. In August last, your Assist- 
 ant to Chairman addressed the Professional Meeting of the Engineer- 
 ing Institute of Canada at Saskatoon on Fuels of Western Canada and 
 their more Efficient Utilization and, later, expanded it for publication. 
 
 FUEL SHORTAGE 
 
 Since our organization nine years ago, we have given special 
 attention to fuel problems, as we recognized that, sooner or later, 
 a combination of circumstances would cause a shortage of fuel. 
 
 In February, 1917, we issued a news letter, warning 
 consumers to lay in their supplies of coal imme- 
 diately, in view of the probability, almost a certainty, 
 that there would be a shortage. It was widely reproduced throughout 
 Canada and the fact that, during the next four months, the anthra- 
 cite imports were much above normal indicates that it had a very 
 material effect. 
 
 Our survey of the underlying conditions had convinced 
 Reduced 8 UPP V us that, unless conditions were unusually favourable, 
 the mines of the United States would not produce 
 sufficient anthracite for our needs in Canada. The great bulk of 
 the anthracite is consumed in the Northeastern and North Central 
 states and in Canada. Owing to the the enormous development of 
 industries connected with the war, there had been a great influx of 
 population into the Northeastern and Atlantic states north of the 
 Potomac, the addition to the population o Massachusetts, New 
 Hampshire, New York, Pennsylvania and Maryland, since 1911, 
 being estimated at 5,000,000, or 15 per cent. The tremendous con- 
 gestion of freight in this industrial area, the removal of millions of 
 men from the producing to the non-producing class, and the trans- 
 ference of increasingly large numbers of men to ship-building, 
 munitions, and other highly-paid war industries, and other factors 
 could have only one effect, namely, an insufficient supply of anthra- 
 cite in Canada. 
 
 In March, 1918, our conclusions were strikingly verified by the 
 announcement of the United States Fuel Administrator that we would 
 receive only 77 per cent of the anthracite imported by us in 1917-18, 
 which amount had been found insufficient. Commencing in Decem- 
 ber, 1917, we had urged a greatly increased cutting of wood fuel, 
 and the increased production materially assisted in tiding over the 
 shortage of anthracite last autumn. Had the war continued till 
 the spring of this year (1919) and had we even had a normal winter, 
 conditions in many parts of Canada would have been serious.
 
 43 
 
 About midsummer of 1917 conditions in the coal-mining industry 
 in the United States demonstrated that drastic action was necessary. 
 On July 12, 1917, Mr. C. A. Magrath was appointed Fuel Controller, 
 with full powers over the mining, transportation, distribution, etc., of 
 coal. During the winter of 1917-18, the shortage of coal became acute ; 
 ' heatless Mondays ' were ordered in Canada and the United States 
 to save fuel, the situation having been much aggravated by the 
 almost unprecedented cold weather. 
 
 Reduction of During the height of the influenza epidemic the pro- 
 Output due to duction of anthracite fell off from 2,000,000 tons per 
 week to 1,500,000, or 25 per cent less than during 
 the same week in 1917. Fortunately, the unprecedentedly mild 
 weather and the termination of the war have averted what would 
 otherwise have been a serious situation. 
 
 Having happily escaped a fuel famine this winter, we should 
 endeavour to formulate a sane and wise policy respecting the develop- 
 ment of our great water-powers, particularly Niagara and the St. 
 Lawrence, and the more efficient utilization of our bituminous, 
 semi-bituminous and lignite coals, that future fuel shortages will not 
 find us unprepared. 
 
 SENATOR EDWARDS: Do you mean for heating or for power 
 purposes? 
 
 MR. WHITE: Both ; in order that we may obtain more efficient re- 
 sults from these coals than can be obtained under existing circum- 
 stances, particularly when they are consumed raw. Electric energy 
 generated from our water-powers, should be utilized for power pur- 
 poses, that our imports of bituminous coal from the United States 
 may be reduced. It cannot be too strongly emphasized that future 
 fuel shortages are not a possibility but are practically a certainty, 
 and they will recur whenever there is a sufficient combination of 
 adverse conditions. In addition, an educative campaign should be 
 carried on urging the adoption of economic methods of firing, the 
 replacement of ineffective boilers and similar measures that will 
 reduce the coal bill. 
 
 FIRE PREVENTION 
 
 Since our last meeting, our report on Fire Waste in Canada, by 
 Mr. J. Grove Smith, has been issued. It is the first report on the 
 subject ever issued in Canada and has aroused public interest in a 
 remarkable manner. That this interest might be crystallized into 
 definite action, the Commission has, during the past year, carried on 
 a campaign of publicity through the newspapers and by means of 
 public addresses. Municipal authorities have been advised respecting 
 the adequacy of their water-works systems for fire protection pur-
 
 44 
 
 poses and equipment of fire departments, such advice necessitating 
 making complete surveys of several municipalities. 
 Fire Prevention Mainly as the result of our efforts, fire prevention 
 Leagues leagues have been organized in Ontario and British 
 
 Columbia. In addition, an advisory committee has 
 been appointed by the Dominion Superintendent of Insurance to 
 inaugurate education of the public and to advise the government 
 respecting fire prevention legislation, movements have been started 
 to have fire marshal acts enacted in the provinces of Quebec, Nova 
 Scotia and New Brunswick, the fire insurance companies operating 
 in Canada are attempting to revise the present insurance agency 
 system in the interests of fire prevention, local authorities are increas- 
 ingly adopting the recommendation. of the Commission with respect 
 to the periodical infection of buildings, and there is every reason 
 to believe that,' eventually, the entire programme outlined by the 
 Commission in its report will receive legislative endorsation. 
 
 The record of fire losses in Canada for 1918 emphasizes 
 the 4iecessity of drastic steps being taken to bring 
 abo .t a change in the public attitude towards fire 
 waste. During the year the total value of property destroyed by 
 fire amounted to no less than $33,600,000, and exceeded by over 35 
 per cent the loss of the previous year. If the amount of money spent 
 on fire protection and insurance be added to the direct fire loss the 
 total reaches over $65,000,000. In other words, if the loss continued 
 at the same rate for nine years, it would aggregate an amount that 
 would equal the entire subscription to the last Victory Loan. 
 The record of fire losses for 1918, classified according to the amount 
 of loss involved in each fire, is given herewith. 
 
 Excessive 
 Fire Losses 
 
 
 Fires over 
 $100,000 
 
 Fires from $10,000 
 to $100,000 
 
 Fires less than 
 $10,000 
 
 No. 
 
 Loss 
 
 No. 
 
 Loss 
 
 No. 
 
 Loss 
 
 January 
 
 8 
 7 
 3 
 5 
 10 
 6 
 7 
 3 
 1 
 5 
 2 
 5 
 
 $ 1,057,000 
 1,467,000 
 575,000 
 1,500,000 
 1,652,000 
 1,277,000 
 960,000 
 812,000 
 250,000 
 3,650,000 
 300,000 
 1,150,000 
 
 34 
 15 
 15 
 21 
 19 
 15 
 19 
 22 
 15 
 9 
 14 
 16 
 
 $ 873,000 
 319,000 
 668,000 
 1,120,000 
 906,000 
 833,000 
 841,000 
 1,183,000 
 419,000 
 646,000 
 402,000 
 376,000 
 
 1,499 
 1,423 
 1,264 
 1,802 
 1,528 
 1,723 
 1,246 
 1,638 
 1,107 
 984 
 1,518 
 1,347 
 
 $ 535,000 
 602,000 
 537,000 
 723,000 
 1,177,000 
 1,006,000 
 1,395,000 
 971,000 
 667,000 
 1,121,000 
 965,000 
 688,000 
 
 February 
 
 March 
 
 April 
 
 May 
 
 June. . , 
 
 July.. 
 
 August 
 
 September 
 
 October 
 
 November 
 
 December 
 
 Total 
 
 62 
 
 $14,650,000 
 
 214 
 
 $ 8,586,000 
 
 17,079 
 
 $ 10,387,000
 
 45 
 
 For many years the people of Canada have felt that the tax 
 for fire insurance is unduly high, but, instead of blaming themselves 
 for creating and maintaining conditions that cause excessive fire 
 waste, have, in large part, devoted their attention to the insurance 
 companies. While not contending that the insurance companies are 
 altruists, it should be borne in mind that they are simply playing 
 the part of distributors. They collect a certain amount of money 
 from the insured, deduct certain amounts for commissions to insur- 
 ance brokers, for office and other expenses of management, for divi- 
 dends to their stockholders, and pay out the remainaei vo policy- 
 holders who have sustained fire losses. Obviously, if ^re losses in- 
 crease, rates must be raised to meet such losses. On the >ther hand, 
 if there were no fire losses, the insurance companies would have to 
 go out of business. 
 
 The fire loss in Canada is increasing at an alarming 
 
 rate the total for 1918 bein S $33,623,000, as compared 
 with $24,800,000 in 1917, $25,600,000 in 1916 
 and $19,022,000 in 1915. In 1918, there were 276 fires, causing a loss 
 of $10,000 or over, as compared with 238 in 1917, 218 in 1916 and 
 237 in 1915. The largest monthly total was that of October 
 $5,119,145 which included the explosion in the munitions plant at 
 Trenton, Ont., resulting in a loss of $3,000,000. 
 
 Mr. J. Grove Smith's investigations demonstrate that a few 
 fires cause two-thirds of our fire loss. In 1918, we had 17,355 fires in 
 Canada, entailing a loss of $33,623,000, but $23,236,000, or 69 per 
 cent, of that loss was caused by 276 fires. Again, only 62 fires were 
 responsible for a loss of $14,650,000, or 44 per cent of the total loss. 
 Small Percentage Much eloquence has been devoted to the advocacy 
 of Loss due to of an educative campaign to instruct the children of 
 Canada respecting greater precautions against fire, 
 the basic idea being that many fires would thereby be prevented. 
 While recognizing the great value of such education, it must be borne 
 in mind that, even if the 12,000 dwelling fires which occur every 
 year were prevented, it would only reduce our fire loss by 5 per cent, 
 whereas, if the less than 300 fires which annually damage large mer- 
 cantile establishments and manufacturing plants could be prevented, two- 
 thirds of our fire waste could be avoided. 
 
 Mr. Smith recommends that the following legislation be enacted : 
 
 (1) Requiring a signed application (on a standard form) for all 
 insurance, the statements in such application to form a condition 
 of the insurance contract and a continuing warranty during the 
 currency of the policy. 
 
 (2) Requiring the registration and licensing of all agents and 
 brokers placing insurance with companies operating under Dominion
 
 46 
 
 license, license to be issued by the Superintendent of Insurance 
 after examination of the character and qualifications of the said 
 agents and brokers. 
 
 (3) Requiring the proper inspection by insurance agents of all 
 property whereon the total insurance exceeds $5,000, and making 
 compulsory the notification of defective or dangerous conditions 
 in buildings to the Provincial Fire Marshal's department. 
 
 (4) Empowering Provincial Fire Marshals to prevent the issuance 
 of insurance and to cancel all existing insurance upon property 
 reported as being in a dangerous condition until such conditions 
 have been remedied. 
 
 (5) Requiring the installation and proper maintenance of 
 automatic sprinkler systems in all buildings (fireproof buildings 
 excepted) which, together with their contents, have an insured 
 value exceeding $100,000. 
 
 To carry these recommendations into effect, legislation by both 
 the Dominion and the various Provincial Legislatures must be had, 
 though much can be accomplished by amendments to the present 
 Regulations of the Dominion and Provincial Insurance Branches. 
 
 CONSERVATION OF GAME AND WILD LIFE 
 
 During the year, we have co-operated with the Advisory Board 
 on Wild Life Protection. Your Assistant to Chairman is Chairman 
 of the Board and represents the Commission thereon. 
 
 The Regulations under the Migratory Birds Conven- 
 COTventkm Act t ' on ^ ct are now operative, and, with few exceptions, 
 
 the provinces have amended their legislation to con- 
 form with the terms of the treaty and are administering these laws, 
 the Dominion taking action only when requested to do so by a pro- 
 vince. 
 
 The Regulations under the new Northwest Game Act are now in 
 effect. They provide increased protection for the game and fur- 
 bearers of our northern regions which constitute so important an 
 economic asset. The licensing of the fur trade will give a control 
 that will ensure its adequate conservation. The musk-ox, wapiti 
 and wood bison are now permanently protected. 
 
 Point Pelee, Ont., the most southerly portion of Can- 
 Nation^ Park ac ^ a ' nas been established as a National park, for the 
 
 protection of the birds which concentrate there 
 during migration or breed there. It is hoped that Bonaventure 
 island, Perc rock and the Bird rocks in the gulf of St. Lawrence will 
 be segregated as bird sanctuaries.* 
 
 *Since the above was written the Quebec Legislature has, on the recommendation 
 of Hon. Mr. Mercier, Minister of Colonization, Mines and Fisheries, passed an Act, 
 establishing bird sanctuaries on these islands.
 
 47 
 
 The Advisory Board took a strong stand against any unwarranted 
 relaxation of our game laws for the purpose of increasing the food 
 supply. New Brunswick has now prohibited the sale of game, making, 
 in all, three provinces that have adopted this policy so essential to 
 game protection. Efforts are also being made to check the excessive 
 slaughter of moose in the Yukon for the market. 
 
 Killing Deer ^ increase the meat supply, the province of Ontario 
 to Increase killed a number of deer in Algonquin Park. In all, 
 
 Meat Supply 65Q deer were ^jj^ and yielded 66 22 l Ibs. of meat, 
 
 or one-half ounce of meat for each inhabitant of the province of 
 Ontario. 
 
 The wapiti is protected everywhere except in Saskatchewan. 
 A letter from the Premier, Hon. Mr. Martin, addressed to the Advisory 
 Board, indicates that the game laws of that province will be amended 
 during the current session to give this magnificent animal protection 
 there also.* 
 
 The North American Reindeer Co. proposes to import reindeer 
 from Alaska, and has applied for a grazing lease of a large area in 
 Manitoba and the Northwest Territories northwest of Churchill. If 
 the experiment be successful, this herd will supply animals for 
 transportation and will add to the meat supply. 
 Conference on UT Committee on Fish, Game and Fur -bearing 
 Wild Life Animals and the Advisory Board on Wild Life Pro- 
 
 tection, jointly, have called a conference of game offi- 
 cials of the Dominion and Provincial Governments and of others 
 interested in the conservation of game, fur-bearing animals and wild 
 life generally. This conference will be held here to-morrow and the 
 day following and valuable results are anticipated. 
 
 It is expected that the report on our Wild Life Resources and their 
 Conservation, which is being prepared by Dr. C. Gordon Hewitt, who 
 has continued to act as special adviser to the Commission in the pro- 
 tection of game and wild life, will be completed shortly and will be 
 published during the year. 
 
 COMMITTEE ON PRESS AND CO-OPERATING 
 ORGANIZATIONS 
 
 That conservation is receiving so much attention in Canada is 
 largely due to the work of the Commission of Conservation. The 
 Commission initiated the work of publicity respecting conserva- 
 tion of natural resources and to this body, a large measure of resultant 
 public interest is undoubtedly due. 
 
 'Since the foregoing was written, the Province of Saskatchewan has also 
 passed legislation protecting the wapiti, commonly called the elk.
 
 48 
 
 Through the medium of Conservation and Conservation 
 
 SchooTchtfdren f Li f e the P u ^ c * s kept in toucn witn what is f 
 interest in the conservation and protection of Canada's 
 
 public domain. 
 
 Canada's resources and their development receive far too little 
 attention in our schools. Conservation is distributed monthly to 
 2,600 school teachers, and, through them, many thousands of Canada's 
 younger generation have the enormous importance of the efficient 
 utilization of Canada's natural resources impressed upon them. 
 
 The Commission has supplied to the Khaki University in London 
 numerous copies of its reports. These publications are being used as 
 text books in the continuation courses. Their study by the soldiers 
 overseas will prove of great value to the men, personally, and also, 
 through the creating of added interest in their country, be a distinct 
 advantage to Canada. 
 
 Canadian Press "^ ie newspapers of Canada have stood loyally back of 
 Supports Conservation and have given largely of their space 
 
 Conservation tQ reprmtmg j ts ma terial. They have also very 
 generously made editorial reference to Canada's natural resources and 
 their protection. Especially has this been the case recently regarding 
 the proper planning and preparation of land for soldiers homesteading. 
 The newspapers and periodicals of Quebec have given unlimited 
 space in the campaign for securing the passing of a Town Planning 
 Act by the Quebec Legislative Assembly. 
 
 Our editor was present at the annual meeting of the Canadian 
 Press Association, when the opportunity was taken advantage of to 
 impress upon the visiting editors the work of the Commission and its 
 value to Canada. 
 
 Conservation and Conservation of Life have been issued regularly 
 as also special newspaper bulletins as occasion required. 
 
 The Annual Report was issued in English and French. 
 
 Published ^ departure was made this year from the usual 
 
 custom, in that the larger portion of the edition was 
 
 bound in paper covers. This has effected a considerable saving, as 
 
 the cost of cloth binding has very materially increased. 
 
 Fire Waste in Canada, by J. Grove Smith, our Fire Prevention 
 Engineer, was published, and has had a very heavy demand. This 
 report has been widely commented upon, and has aroused much 
 interest in fire prevention. 
 
 Forest Resources of British Columbia, by Dr. H. N. Whitford and 
 Roland D. Craig, has just been issued, as has also Electric Generation 
 and Distribution in Canada, by Leo. G. Denis.
 
 49 
 
 A Farmer s Account Book, prepared by F. C. Nunnick, contain- 
 ing a simple method of book-keeping for farm use, has been printed. 
 The number of requests from active farmers has exhausted the 
 first edition, and a further edition is being prepared. 
 
 The following pamphlets have also been issued: Wood Fuel to 
 Relieve the Coal Shortage in Eastern Canada, by Clyde Leavitt; Fuels of 
 Western Canada, by James White; Handbook for Farmers, by F. 
 C. Nunnick and E. P. Bradt; Utilization of Fish Waste in Canada, 
 by J. B. Feilding; Fishways in the Inland Waters of British Columbia, 
 by A. V. White; Conservation of Man-power in Canada, by Dr. P. 
 H. Bryce; Garbage as Feed for Hogs, by F. C. Nunnick; Powdered 
 Fuel, by W. J. Dick, and Goitre, by Dr. F. J. Shepherd. 
 
 There is in press a report on Water-Powers of British Columbia, 
 by A . V. White, and in course of preparation Forests of Saskatchewan, 
 by J. C. Blumer, Urban Planning and Dvelopment, by Thomas Adams, 
 and Wild Life in Canada and its Conservation, by Dr. C. Gordon 
 Hewitt. 
 
 In June last, by order in council, the printing of the Commission 
 was brought under the Department of Printing and Stationery, and the 
 cost of its execution by the Printing Bureau will be charged to the 
 Commission. Previously, all the Commission work has been executed 
 by private printing plants, after competitive tenders had been secured. 
 This plan was found to be economic and efficient, the work being 
 executed at a minimum cost and good service being secured. 
 
 598754
 
 51 
 
 APPENDIX I 
 
 Aluminium, with Special Reference to Use for Electrical 
 
 Energy Transmission 
 
 The aluminium industry began in a very modest 
 Historical manner in the early 'eighties' of the last century. 
 
 Several factories were operated on the St. Claire 
 Deville method, of which the one at Salindres, France, produced 2\ 
 tons of aluminium annually. The production increased only slowly 
 to begin with, as will appear from the appended table* showing 
 the world's production in metric tonsf: 
 
 1880 2.4 1907 19,800 
 
 1885 13 1908 18,600 
 
 1890 175 1909 31,200 
 
 1895 1,426 1910 43,800 
 
 1900 5,000 1911 45,000 
 
 1901 6,900 1912 61,100 
 
 1902 8,350 1913 78,790 
 
 1903 8,200 1914 84,857 
 
 1904 9,300 1915 86,394 
 
 1905 11,500 1916 112,626 
 
 1906 14,500 1917 173,500 
 
 In a reviewj of the international aluminium industry, published 
 in 1917, it was stated that the demand for aluminium had increased 
 greatly during the last few years. While the German, Swiss, French, 
 and British works have had difficulty in extending greatly under 
 war conditions, the aluminium industry in the United States has 
 made enormous progress. The world's production of aluminium 
 during 1917 is estimated at 173,500 metric tons, and, if the extensions 
 and new constructions now in process of execution are taken into con- 
 sideration, the capacity will increase to 200,000 tons in the near future. 
 Such a large production would prevent excessive prices of aluminium, 
 but it is questioned whether sufficient supply of alumina, bauxite, 
 cryolite, etc., will be on hand in time to produce 200,000 tons. 
 
 *Statistics for 1880-1902 from Engineering, Aug. 16, 1918, p. 163; for 1903-12, 
 from Metallgesellschaft, 1903-1912, p. 16; for 1912-17, from Mineral Industr 
 during 1917, p. 10. 
 
 fThe metric ton is 2,204 Ibs, but, as these statistics are only close approxima- 
 tions or estimates, it is assumed to be 2,200 Ibs. 
 
 ^Electrical Review, London, March 30, 1917. 
 
 59875 i*
 
 52 
 
 Figures relating to the occurrence of aluminium 
 
 Occurrence show that it is the third in the list of elements of the 
 
 body of the earth (7-90 per cent, according to F. W. 
 
 Clarke) and as No. 1 of all the metals iron comes next with 4-43 
 
 per cent). 
 
 Bauxite is the only available ore of aluminium. Its consumption 
 has been steadily increasing since the outbreak of war, not only as 
 a source of this valuable metal, but for abrasives, brick for metallur- 
 gical furnaces, etc. 
 
 Statistics of production in the United States, France, United 
 Kingdom, Italy and India, during 1913-17, are given on p. 53. 
 
 " Bauxite has been discovered in considerable quantities in 
 British Guiana . . . Development work has now reached a stage 
 where a steady output is assured . . . The British Government is 
 now taking a firm stand with regard to the exploitation of these 
 deposits and is determined that the first call shall be reserved for the 
 British Empire.'"' In December, 1917, it was announced that no 
 further applications for bauxite lands would be granted till after the 
 war. The Government also ordered that a portion of the bauxite 
 won by holders licensed before this regulation came into force must 
 be placed at its disposal at a certain price and, also, reserved the right 
 to limit or to prohibit the export to countries other than British. 
 Following the promulgation of these regulations, a large export to a 
 foreign country of British Guiana bauxite, won by a company in 
 which foreign interests are partly represented, was held up.f 
 
 In view of the possibility that additional plants for the manufac- 
 ture of aluminium may be established in Canada, the foregoing state- 
 ment respecting British Guiana bauxite is of interest. 
 
 No commercial ores of aluminium have, as yet, been found in 
 Canada. Aluminium is, however, made in the Northern Aluminum 
 Co.'s extensive works at Shawinigan Falls, Que., from bauxite ores 
 imported from France, the United States, and also, formerly, from 
 Germany. The company also operates a wire mill for the manufac- 
 ture of aluminium wire and cables. 
 
 * The Mineral Industry During 1917, p. 28. 
 
 tWhile this was probably correct when printed, the Aluminum Company of 
 America is mining bauxite on its properties in British Guiana. Ocean-going vessels 
 ascend the river to the mines, and transport the ore to New Orleans ; thence, it is 
 shipped by rail to East St. Louis.
 
 53 
 
 According to The Mineral Industry During 1917, the world's 
 production of bauxite for 1913 to 1917 was as follows: 
 
 
 1913 
 
 1914 
 
 1915 
 
 1916 
 
 1917 
 
 France 
 
 Long tons 
 304,314 
 
 Long tons 
 
 (a) 
 
 Long tons 
 (a) 
 
 Long tons 
 
 (a) 
 
 Long tons 
 (a) 
 
 United States 
 
 210,241 
 
 219,318 
 
 297,041 
 
 425,100 
 
 568,690 
 
 Great Britain 
 
 8,282 
 
 8,286 
 
 11,723 
 
 10,329 
 
 14,724 
 
 Italy 
 
 6,841 
 
 3,844 
 
 5,807 
 
 8,739 
 
 (a) 
 
 India 
 
 1,184 
 
 514 
 
 876 
 
 750 
 
 (a) 
 
 
 
 
 
 
 
 (a) Statistics not available. 
 
 Production 
 
 Some notes on the manufacture of aluminium, as 
 carried out by the British Aluminium Company in 
 1911, are of interest. The allocation of cost* is given as follows: 
 
 Per Ib. 
 
 Energy 1 12 c. 
 
 Carbon 1-45 
 
 Alumina 6-25 
 
 General expenses and profits 6-25 
 
 15-07 
 
 The following table, which only claims to be approximate, and 
 which refers to the conditions prevailing before the war, is another 
 estimate as to the cost of production. 
 
 
 Francs 
 per kilo- 
 gramme 
 
 Cents 
 per Ib. 
 
 35 k.w.h. at 0- 7 centimes 
 
 0-25 
 
 2-19 
 
 2 kg. of aluminate at 25 
 
 0-50 
 
 4-38 
 
 0-8 kg. electrodes at 0-35 
 
 0-28 
 
 2-45 
 
 0-12 kg. cryolite at 0-40 
 
 0-05 
 
 0-44 
 
 0-05 kg. fluoride at 0-50 
 
 0-03 
 
 0-26 
 
 25 working hours at 60 
 
 0-15 
 
 1-31 
 
 Sundries ~, 
 
 0-15 
 
 1-31 
 
 
 
 
 
 l-35f 
 
 12-34 
 
 * See p. 59 for New York prices of aluminium, 1913-17. 
 
 t Engineering, August 30, 1918. The total as given in the original article is 
 as above, but the items of cost, as stated, total 1.41 francs, which is equivalent to 
 12. 89 cents.
 
 54 
 
 "With regard to the consumption of electric energy in the pro- 
 duction of aluminium, Faraday's law requires 2,969 ampere-hours per 
 kilogramme [1 .347 amp.-hours per pound] of aluminium, and this result 
 is very nearly (95 per cent to 90 per cent) reached in actual produc- 
 tion ".* In practice, " in order to produce 1 kg. of aluminium as 
 little as f24 k.w.h. [11 k.w.h. perpoundj has been employed, but 33 
 k.w.h. to J35 k.w.h. per kilogramme [15 k.w.h. per pound] is con- 
 sidered a satisfactory result ". 
 
 The Norwegian Hoyang Falls Company is erecting an aluminium 
 factory in the Sognefjord of 20,000 h.p. for an annual production of 
 4,000 tons; their calculations are based on a cost of production of 1 
 kroner per kilogramme (11.7 cents per pound) of aluminium, a normal 
 selling price of 1 .45 kroner (17 cents per pound) being reckoned upon, 
 which should provide a dividend on the share capital of some 15 per 
 cent, the various items in the way of expenses, etc., having been 
 provided for. The share capital is 15,000,000 kroner (about $3,900,- 
 000). 
 
 The transportation of raw materials very materially affects the 
 cost of production of aluminium. For instance, the factories in 
 Salindres, France, which have an annual production of some 12,000 
 tons of oxide of aluminium, require 30,000 tons of bauxite, 6,500 tons 
 of lime and 50,000 tons of coal. 
 
 Mr. J. T. Pattison, sometime in charge of the chemical laboratory 
 of the Aluminium Corporation, Ltd., Wallsend-on-Tyne, states in his 
 The Manufacture of Aluminium, p. 12, that the Aluminium Com- 
 pany's furnaces yield 1 75 pounds of aluminium per horse-power day. 
 
 Although it is impossible, at the present moment, to forecast the 
 effect of the war upon many industries, it is clear that the shortage 
 of copper has greatly extended the use of aluminium, and that not 
 merely temporarily. The production has, in consequence, increased, 
 and a number of important aluminium works have been, and are 
 being, started in different countries. 
 
 The annual production, in metric tons, of aluminium was distri- 
 uted amongst the different countries as under : 
 
 ^Engineering, p. 219, August 30, 1918. 
 
 t This would be equivalent to about 600 Ib. of aluminium per horse-power year 
 t 33 k.w.h. per kg. is equivalent to 436 Ibs. of aluminium per horse-power year, 
 or 35 k.w.h. per kg. is equivalent to 411 Ibs. Mr. A. V. Davis, President of the 
 Aluminum Company of America, has stated that one horse-power year will produce 
 450 Ibs., demonstrating that, in their practice, a slightly higher efficiency has been 
 obtained.
 
 55 
 
 
 Canada 
 
 United 
 States 
 
 Great 
 Britain 
 
 France 
 
 Norway 
 
 Italy 
 
 Switzer- 
 land 
 
 Austria- 
 Hungary 
 
 Total 
 
 1903 
 1904 
 1905 
 1906 
 1907 
 1908 
 1909 
 1910 
 1911 
 1912 
 1913 
 1914 
 1915 
 1916 
 1917 
 
 
 3,400' 
 3,900' 
 4.500 1 
 6,000' 
 8,000' 
 6,000' 
 13,200 
 16,100 
 18,000 
 18,000 
 29,500 
 40,600 
 45,000 
 63,000 
 90,700 
 
 700 
 700 
 1,000 
 1,000 
 1,800 
 2,000 
 2,800 
 5,000 
 5,000 
 7,500 
 10,000 
 8,000 
 6,000 
 4,000 
 6,000 
 
 1,600 
 1,700 
 3,000 
 4,000 
 6,000 
 6,000 
 6,000 
 9,500 
 10,000 
 13,000 
 15,000 
 12,000 
 7,500 
 20,000 
 20,000 
 
 
 
 2.500 2 
 
 
 8,200 
 9,300 
 11,500 
 14,500 
 19,800 
 18,600 
 31,200 
 43,800 
 45,000 
 61,100 
 78,790 
 84,857 
 86,394 
 112,626 
 173,500 
 
 
 
 
 3,000* 
 
 
 
 
 
 3,000 s 
 3,500* 
 
 
 
 
 
 
 
 
 
 4,000* 
 
 
 
 
 600 
 800 
 800 
 800 
 800 
 874 
 937 
 904 
 1,126 
 7,000 
 
 4,000* 
 5,000* 
 8,000* 
 8,000* 
 12,000 
 10,000 
 10,000 
 12,500 
 15,000 
 15,000 
 
 
 2,8003 
 3,500' 
 2,300s 
 8,3003 
 5,916 
 6,820 
 8,490 
 8,500 
 11,800 
 
 600 
 900 
 900 
 1,500 
 2,500 
 2,500 
 3,500 
 16,000 
 18,000 
 
 
 
 
 
 5,000 
 4,000 
 2,500 
 5,000 
 5,000 
 
 Note Statistics for 1903-12 from Metallgesellschaft 1903-1912, p. 16; for 1913-17, 
 from Mineral Industry during 1917, p. 10. 
 1 Includes Canada. 
 
 * Includes Austria-Hungary and Germany. 
 1 Exports. 
 
 The proportion of the world's production of aluminium in 1913 
 and 1917, respectively, was: Canada, 7- 5 and 6-8 per cent; United 
 States, 37-5 and 52-3 per cent; Great Britain, 12-7 and 3-4 per 
 cent; Switzerland, 12-7 and 8-7 per cent; Austria-Hungary, 6 -4 and 
 2 9 per cent ; France 19 and 11-5 per cent ; Norway 3 2 and 10 4 
 per cent; Italy, 1-0 and 4-0 per cent. In 1917, the aluminum pro- 
 ducing companies of the world had the following output: 
 
 
 Metric tons 
 
 Pounds 
 
 Aluminum Co. of America 
 
 90,700 
 
 200,000,000 
 
 Northern Aluminum Co. of Canada 
 
 11,800 
 
 26,000,000 
 
 L'Aluminium Franchise (France and Norway) 
 
 30,000 
 
 66,000 000 
 
 British Aluminium Co. (Great Britain and Norway) . . . 
 Aluminium Industrie Aktiengesellschaft (Switzerland 
 and Austria) 
 
 11,800 
 20,000 
 
 24,200,000 
 44,000,000 
 
 L'Aluminio Italiano (Italy) 
 
 7,000 
 
 15,400,000 
 
 Hoyang Falden Aluminium (Norway) 
 
 3,000 
 
 6,600,000 
 
 
 
 
 
 173,500 
 
 382,200,000 
 
 Canada The Mineral Industry During 1917 states that the 
 " Northern Aluminum Co., a subsidiary of the Aluminum Company 
 of America, with extensive works at Shawinigan Falls, Que., is the
 
 56 
 
 only producer. It is said to use 42,000 kilowatts (56,000 h.p.). Its 
 output is not officially published, but, with the above cited power, it 
 should be about 14,000 metric tons per year. Statistics published 
 by the Canadian Government show the importation of bauxite and 
 alumina, together, as 87,154 short tons in 1917. The exports of 
 aluminium in ingots and bars are given as 22,324,600 lb., valued at 
 $7,620,953, or 34-1 cts. per lb. The production was greater than 
 this by the amount produced which was consumed in Canada; 
 estimating this as about 3,500,000 lb., we have placed the 1917 
 production at 26,000,000 lb., which is equal to 14,300* metric tons. 
 This agrees with the 14,000 tons mentioned above as corresponding 
 to the power stated by Mr. H. E. Randall to be used at the Shawinigan 
 plant. The output of the Canadian plant is used chiefly for export 
 to Europe, Japan, etc. Its exports to the United States in 1917 were 
 1, 879,859 lb." 
 
 Although all the raw material has to be imported for the pro- 
 duction of aluminium in Canada, the industry is of some importance, 
 owing to the cheap hydro-electric power facilities offered by this 
 country, while a large portion of the United States production is 
 obtained with hydro-electric energy exported from Canada. The 
 following table shows the expansion of the industry in Canada since 
 1905: 
 ANNUAL IMPORTS OF 'ALUMINA' AND EXPORTS OF ALUMINIUM 
 
 Calendar 
 year 
 
 Imports of 
 alumina 
 
 Exports of aluminium 
 
 Ingots, bars, etc 
 
 Manu- 
 factures 
 
 Pounds 
 
 Value 
 
 Pounds 
 
 Value 
 
 Value 
 
 1905 
 
 5,360,800 
 8,975,400 
 12,705,300 
 1,485,500 
 11,794,100 
 19,464,400 
 18,607,200 
 22,400,500 
 30,704,200 
 28,557,000 
 35,016,200 
 53,819,000 
 174,307,800 
 186,442,200 
 
 $ 138,765 
 239,136 
 268,502 
 29,752 
 234,544 
 403,283 
 372,009 
 448,061 
 614,713 
 571,419 
 892 , 634 
 1,114,061 
 1,866,240 
 2,071,060 
 
 2,535,386 
 4,521,486 
 5,478,203 
 1,713,800 
 6,134,500 
 7,722,400 
 4,990,100 
 18,285,700 
 13,015,000 
 14,510,800 
 18,680,800 
 18,425,300 
 22,324,600 
 21,616,500 
 
 $ 508,219 
 899,113 
 1,109,353 
 399,785 
 918,195 
 1,160,242 
 747,587 
 2,002,363 
 1,762,214 
 2,364,907 
 3,333,726 
 5,201,066 
 7,620,953 
 7,223,570 
 
 $ 1,588 
 2,244 
 1,499 
 1,727 
 3,453 
 3,741 
 1,555 
 10,898 
 8,203 
 5,571 
 620,562 
 26,780 
 17,165 
 197,673 
 
 1906 
 
 1907 
 
 1908 
 
 1909 
 
 1910 
 
 1911 
 
 1912 
 
 1913 
 
 1914 
 
 1915 
 
 1916 
 
 1917 
 
 1918 
 
 
 United States There are aluminium plants at Niagara Falls, 
 N.Y., Massena, N.Y., Maryville, Tenn., and Badin, N.C., all owned 
 by the Aluminum Company of America, which monopolizes the 
 
 *An obvious error; 26,000,000 Ibs. is equal to 11,800 metric tons.
 
 57 
 
 manufacture of aluminium in Canada and the United States. The 
 capacity of the Badin plant, since its enlargement " has been stated 
 to be 65,000 k.w., capable of furnishing 23,000 (metric) tons of metal 
 annually." In Tennessee, the Aluminum Co., through a subsidiary 
 company, has developed a water-power plant on the Little Tennessee 
 river. This is the first of a system of seven plants, which, " when 
 completed and put into action, will just about double the aluminium- 
 producing capacity of North America." Seven dams will store water 
 sufficient to produce a constant 450,000 h.p. The investment in this 
 development may be estimated at $40,000,000. 
 
 The Boston News Bureau states that, commencing with $1,000- 
 000 authorized capital in 1889, the Aluminum Co. of America increased 
 its capitalization to $3,800,000 in 1905 and to $20,000,000 in 1909. 
 In 1916, it paid a dividend of 10 per cent. " As a matter of fact, the 
 company has invested about $70,000,000 of undivided profits in its 
 business; its present investment in plant is over $80,000,000. The 
 market value of its $20,000,000 stock is probably $150,000,000."* 
 
 Great Britain The British Aluminium Co. has two plants in 
 Great Britain and two subsidiary reduction plants in Norway. When 
 war broke out, it suspended work on the development of a water- 
 power and a reduction plant in Switzerland. Extensions of its British 
 plants are under construction and plans are on foot to increase its 
 Norwegian plants. Profits in 1917 were 347,474 ($1,737,000) out 
 of which 6 per cent dividend was paid on the preferred shares and 
 10 per cent on the common. 
 
 The Aluminium Corporation has one plant in Great Britain. 
 
 The price of aluminium in Great Britain in 1917 was fixed at 
 48.8 cents per Ib. 
 
 France There are plants with an aggregate capacity of about 
 100,000 h.p., viz. : Soci^te Electrometallurgique Franchise, with 
 factories at La Praz and at Gardannes; and the Compagnie des 
 Produits Chimiques d'Alais, with factories at Calypso, St. Felix de 
 Maurienne, St. Jean de Maurienne, Auzat and Chedde. 
 
 The French Ministry of Munitions fixed the price of aluminium 
 in France for 1917 at 4 francs per kilo (32-7 cts. per Ib.), but, on 
 Oct. 1, increased it to 6 francs (50-9 cts.). 
 
 Switzerland The Aluminium Industrie Aktiengesellschaft, Neu- 
 hausen, Switzerland, controls factories with an aggregate capacity of 
 100,000 h.p., viz., one at Neuhausen, Switzerland, one at Rheinfelden, 
 Germany, and one at Lend-Gastein, Austria, also at Crippis-Borgne. 
 Its net profits in 1917 were 19,810,000 frs. A dividend of 20 per 
 cent was paid on the 35,000,000 frs. capital stock, the 8,750,000 
 
 *The Mineral Industry During 1917, p. 13.
 
 58 
 
 frs. of the capital stock unpaid was paid up and a bonus of 7,000,000 
 frs. in new shares was divided among the stockholders. 
 
 Norway The capacity of the Norwegian aluminium plants is 
 as follows: Arendal, 5,000 tons; Tyssedal, 6,000 tons; Vigeland, 
 2,000 tons; Stangfjord, 600 tons; Hoyang, 4,000 tons. Total, 17,600 
 tons. Mineral Industry states that " the present Norwegian pro- 
 duction is probably 18,000 to 20,000 tons per year," but exact figures 
 are not available. 
 
 Italy Three companies, the Villeneuve et Borgofranco, the 
 Tresfilieres du Havre and the Trafilierie et Lamanitoi di Metalli are 
 combined into the L'Aluminio Italiano, with a capital of 20,000,000 
 lire ($5,000,000). 
 
 The countries which have exported most aluminium are France 
 and Switzerland. Prior to the war, each exported 7,000 tons to 8,000 
 tons per annum. Germany has been the largest importer of alumin- 
 ium 16,000 tons in 1912 and 12,500 tons in 1913. It is very difficult 
 to obtain reliable information about the production of aluminium 
 during the war; prices have risen abnormally, and new factories have 
 been started which have secured contracts extending over several 
 years after the conclusion of peace. 
 
 Conditions of 1915 were favourable to the United States branch 
 of the aluminium industry. In 1914, the United States produced 
 about 48 per cent of the world's production; in 1915, probably over 
 50 per cent; and, in 1917, 52.3 per cent. In 1917, Canada produced 
 6.8 per cent of the world's production. Or, expressing it in another 
 way, Canada and the United States, combined, produced one and 
 one-half times as much aluminium as the rest of the world. 
 
 Provided the projected factories are built and operated, the 
 production of aluminium is soon likely to be largely increased. If the 
 alumina factories can increase their output, an annual production 
 of some 200,000 tons of aluminium may then be reckoned upon. 
 
 It is estimated that, of this aggregate, 50 per cent is likely to be 
 produced in the United States and Canada, 8 per cent in Great Britain 
 (11 per cent before the war), 13 per cent in France (26^ per cent 
 before the war), 11 per cent in Norway (2\ per cent before the war), 
 4^ per cent in Italy (1| per cent before the war), and 13 per cent in 
 Switzerland, Germany and Austria-Hungary. 
 
 This estimate has recently been made by a " French expert, 
 from which fact it would appear that the French themselves are 
 prepared to lose their lead in the production of what has been called 
 the French metal. The French, however, have not been idle, but 
 propose to meet the increased foreign competition by starting branch 
 factories in different parts of the world. France is therefore likely to 
 maintain its financial position in the world's aluminium industry for
 
 years to come. The French obtained what may be called a privileged 
 position, apart from their bauxite deposits, chiefly through their early 
 developed chemical and electro-chemical aluminium industry, which 
 not only aimed at producing but at finding fresh uses for this new 
 and untried metal."* 
 
 As a result of the requirements for war purposes, up 
 Value and , , . . 
 
 Prices to the date of the armistice, the demand greatly 
 
 exceeded the supply. The principal use was in the 
 manufacture of a high explosive called ' ammonal ', a mixture of 
 ammonium nitrate and powdered aluminium. Large quantities were 
 required for the frame-work of airships, aeroplanes, certain parts of 
 machine guns, the points of rifle bullets, etc. As a result of this 
 demand, the price of aluminium has been affected to a much greater 
 extent than most other metals. The rapid rise in prices occurred in 
 1915 as shown by the following: 
 
 AVERAGE PRICES OF CERTAIN METALS, 1895-1919, AT 
 NEW YORKi 
 
 Year 
 
 Copper, 
 electro- 
 lytic 
 
 Lead 
 
 Tin 
 
 Alumin- 
 ium 
 
 Silver 
 
 1895 
 
 Cents 
 per Ib. 
 
 10-8* 
 
 Cents 
 per Ib. 
 3-2 
 
 Cents 
 per Ib. 
 14-1 
 
 Cents 
 per Ib. 
 58-7 
 
 Cents 
 per oz. 
 65-3 
 
 1896 
 
 10-9* 
 
 3-0 
 
 13-3 
 
 50-8 
 
 67-1 
 
 1897 
 
 11-32 
 
 3-6 
 
 13-7 
 
 39-0 
 
 59-8 
 
 1898 
 
 12-0* 
 
 3-8 
 
 15-7 
 
 30-6 
 
 58-3 
 
 1899 
 
 16-7 
 
 4-5 
 
 25-1 
 
 32-7 
 
 59-6 
 
 1900 
 
 16-2 
 
 4-4 
 
 29-9 
 
 32-7 
 
 61-3 
 
 1901 
 
 16-1 
 
 4-3 
 
 26-7 
 
 33-0 
 
 59-0 
 
 1902 .. . 
 
 11-6 
 
 4-1 
 
 26-8 
 
 33-0 
 
 52-2 
 
 1903 
 
 13-2 
 
 4-2 
 
 28-1 
 
 33-0 
 
 53-6 
 
 1904 
 
 12-8 
 
 4-3 
 
 28-0 
 
 35-0 
 
 57-2 
 
 1905 
 
 15-6 
 
 4-7 
 
 31-4 
 
 35-0 
 
 60-4 
 
 1906 
 
 19-3 
 
 5-7 
 
 39-8 
 
 35-8 
 
 66-8 
 
 1907 
 
 20-0 
 
 5-3 
 
 38-2 
 
 45-0 
 
 65-3 
 
 1908 
 
 13-2 
 
 4-2 
 
 29-5 
 
 28-7 
 
 52-9 
 
 1909 
 
 13-0 
 
 4-3 
 
 29-7 
 
 22-0 
 
 51-5 
 
 1910 
 
 12-7 
 
 4-4 
 
 34-1 
 
 22-3 
 
 53-5 
 
 1911 
 
 12-4 
 
 4-4 
 
 42-3 
 
 20-1 
 
 53-3 
 
 1912 
 
 16-3 
 
 4-5 
 
 46-1 
 
 22-0 
 
 60-8 
 
 1913 . . , 
 
 15-3 
 
 4-4 
 
 44-3 
 
 23-6 
 
 59-8 
 
 1914 
 
 13-6 
 
 3-9 
 
 34-3 
 
 18-6 
 
 54-8 
 
 1915 
 
 17-3 
 
 4-7 
 
 38-6 
 
 34-0 
 
 49-7 
 
 1916 
 
 27-2 
 
 6-9 
 
 43-5 
 
 60-7 
 
 65-7 
 
 1917 
 
 27-2 
 
 8-8 
 
 61-8 
 
 51-6 
 
 81-4 
 
 1918 
 
 24 -6 
 
 7-4 
 
 ** 
 
 33-5* 
 
 96-8 
 
 1919* 
 
 16-6 
 
 5-2 
 
 72-5 
 
 33-0' 
 
 109-4 
 
 1 Engineering and Mining Journal, Feb. 22, 1919, p. 352. 
 
 ! Prices 1895 to 1898 are for Lake copper. 
 
 3 Average of 1 1 months, no quotations being made in December. 
 
 4 The prices quoted for 1919, are current prices for June 4, 1919. 
 
 'Official price. 
 
 ** No average computed. 
 
 ~*~ Engineering, August 30, 1918, p. 219. 
 t Engineering and Mining Journal, quotations in annual review numbers.
 
 60 
 
 In 1854, aluminium sold at 120,000 per ton; in 1856, at 
 14,400 per ton; 1858-85, at 4,800; in 1886, at 3,400 per ton; 
 at the end of 1890, the price had declined to 720; at the end of 1891, 
 to 240; in 1900, it sold at 86; in 1910, at 62. 
 
 The great fall in price followed the decline in the price of sodium 
 from 2,000 francs to 15 francs per kilogramme. Prior to the war, 
 aluminium had dropped to 60 per ton and had become one of the 
 cheaper metals. Comparison of the foregoing with the prices of 
 metals quoted on page 59 shows that, owing to the protective tariff, 
 the price of aluminium in the United States is higher than in Great 
 Britain. 
 
 Used in Certain properties of aluminium tend to bring it 
 
 Transmission in keen competition with copper for the construction 
 of electric transmission lines; the economic question 
 based on the relative prices of the two metals is the principal deter- 
 mining factor in choosing between the two. 
 
 Aluminium is very light (2-7 against 8-9 for copper); it 
 has a very fair conducting capacity (34 against 57 for copper), and it 
 has relatively satisfactory strength (22 against 44 for copper). To 
 obtain the same total conducting capacity, only half the weight of 
 aluminium is required as compared with copper. Consequently, 
 compared by weight, aluminium may be said to have twice the 
 conducting capacity of copper. As, however, even the half weight 
 of aluminium has a larger volume than the corresponding quantity 
 of copper, the cooling of an open-air aluminium line is more effective 
 than that of a copper line. An aluminium line has also the advantage 
 as regards the stress caused by its own weight, but it is at a dis- 
 advantage as regards wind pressure and accumulation of snow. 
 
 One of the reasons why aluminium has not been more extensively 
 used on transmission lines in the United States, is given in the follow- 
 ing editorial in the Electrical World*: 
 
 "As is well known to our readers, the American price for alu- 
 minium is deliberately set by the powers that rule it at a figure which 
 just fails to encourage the very large use of the metal in preference 
 to copper. Under ordinary conditions an aluminium conductor at 
 American prices is just a few per cent cheaper than the equivalent 
 copper conductor, so little cheaper, in fact, that the extra cost of 
 supports and stringing the aluminium equals the saving. In Europe 
 and in Canada the ordinary quotations of aluminium are about the 
 same, pound for pound, as copper at the base price, and for hard- 
 drawn wire the saving in the use of aluminium figures out at from 
 35 to 40 per cent. This difference in condition is established by a 
 virtual monopoly of aluminium in this country, with the usual effect 
 
 * Electrical World, New York, July 6, 1912.
 
 61 
 
 on the duty, which has been kept just high enough to block import- 
 ations. As a result of this, the transmission line outside of the 
 United States is more than likely to be constructed of aluminium, 
 while, inside our tariff wall, copper has to be the chief reliance. 
 
 " One of the interesting minor advantages of aluminium for 
 the very high voltages as found on some of the Canadian lines is 
 that, owing to its larger cross-section for the same conductivity, the 
 tendency to coronal loss is somewhat reduced." 
 
 Another article in the same issue states: 
 
 " For the last eight or ten months the average market quotations 
 in the United States for the two metals have been: aluminium 21 
 cents per pound, and copper 13 cents per pound. The expenses for 
 drawing into wire are, of course, larger per pound for aluminium 
 than for copper, and the average normal cost of hard-drawn wire 
 may be taken as 27 cents per pound for the former and 15 cents 
 per pound for the latter." On the basis of these prices, the weight 
 of aluminium for the same line capacity being one-half that of copper, 
 "it will be found by simple arithmetic that any bare aluminium con- 
 ductor will cost 10 per cent less than the equivalent copper conductor. 
 Although several aluminium lines have been erected in the United 
 States, it is found, in general, that the comparatively small saving 
 is largely offset by the increased height and cost of the towers for 
 the aluminium line, and consequently there is little inducement for 
 the American engineer to adopt the new metal. Matters are some- 
 what different, however, in Europe and Canada. 
 
 " The United States, European, and Canadian quotations for 
 copper are practically identical, and may be taken at present at 
 12-5 cents per pound. The European and Canadian quotation for 
 aluminium, however, is only 13 cents per pound as against 21 cents 
 in the United States. In these countries, therefore, the prices for 
 hard -drawn wire are approximately 19 cents and 15 cents per pound 
 for aluminium and copper respectively, with the result that the 
 substitution of aluminium for copper effects a saving of over 36 per 
 cent." 
 
 In 1913, during tariff hearings before the Committee on Ways 
 and Means, U. S. House of Representatives, Mr. J. P. Bartlett asked 
 that aluminium be placed on the free list. In his brief, the alumin- 
 ium industry was declared to be practically in the hands of one 
 concern, the Aluminum Company of America, which controls sub- 
 stantially all the sources of aluminium in the United States. The 
 company was also charged with oppressive commercial methods and 
 practices, as evidenced by the suit filed against it by the Federal 
 Government and the decree entered. He offered the following state- 
 ment in reference to the Aluminum Company of America's capitaliza- 
 tion and profits: 
 
 ' That company, starting with a capital of $20,000, ^increased 
 it to $1,000,000, of which, according to said petition, an additional 
 $10,000 was paid for in cash, $250,000 was to be paid as called for,
 
 62 
 
 and $720,000 was the estimated value of certain patents, and that 
 its estimated assets were $27,000,000, representing (with a possible 
 exception of $1,000,000) earnings and including a stock dividend of 
 500 per cent, or $16,000,000, declared Dec. 15, 1909, besides cash 
 dividends often declared, those in 1910 admittedly being 17 per cent 
 on said $27,000,000." 
 
 He further stated that " the company, through its subsidiaries, 
 is ... also the largest consumer of aluminium, discriminating in 
 favour of its own users against outside purchasers; large bauxite 
 deposits, the chief raw material in aluminium production, exist 
 abroad and large manufacturers of aluminium in bulk are also situated 
 there. By placing aluminium on the free list, a large stimulus will 
 be given to the manufacture of aluminium products at home." 
 
 The Aluminum Company of America filed a somewhat extended 
 statement in defence of its operations and the duty of 7 cents per 
 pound. They said: 
 
 " The mineral bauxite is found in Arkansas, Georgia, Alabama, 
 and Tennessee. It requires 6 tons each of bauxite, coal, and lime- 
 stone to make 2 tons of alumina, from which 1 ton of aluminium is 
 made. Alumina is made at East St. Louis, 111., the point of minimum 
 freight haul for the raw materials. Carbon made from petroleum 
 coke is another important raw material employed. Next to labour, 
 electrical energy is the chief requirement in making aluminium, and 
 the company has large electric smelting plants on the Niagara and 
 St. Lawrence rivers, and is commencing another plant on the Little 
 Tennessee river. 
 
 " The reduction process is slow and complicated and requires a 
 large investment. While bauxite is plentiful and has a market 
 value of $5 per ton, aluminum, in the form of ingot, sheet, or wire, 
 has a market value of $400 per ton, owing to labour requirements 
 and the large investment, which amounts to $1,500 per ton of product 
 turned out annually. Even the interest amounts to 4| cents per 
 pound. Petroleum coke is worth about $5 per ton, but the finished 
 carbons cost about $50 per ton. The smelting process is continuous, 
 requiring three daily shifts. Domestic labour is considerably more 
 expensive than the labour obtainable abroad. Freight hauls on raw 
 materials are also much longer in this country than abroad. 
 
 " Outside of the United States there are fourteen companies 
 manufacturing aluminium, with a capacity of over 100,000,000 Ib. 
 per annum, although the foreign consumption in 1911 was but 55 
 per cent of capacity. Importations to this country (United States) 
 have been as follows, in round figures: 1909, 5,140,000 Ib.; 1910, 
 12,340,000 Ib.; 1911, 7,690,000 Ib.; 1912, at rate of 18,750,000 Ib. 
 There have been no exports of aluminium produced at home, but 
 there have been some exports of partly or completely fabricated 
 products made from imported ingots." 
 
 The company asked that the present duty be retained. It 
 also stated that it is not a merger or combination, but has built up 
 up its own property and business. 
 
 War prices seem to have further discouraged the use of aluminium 
 in the United States for transmission line construction. A comparison
 
 63 
 
 in prices of the two metals, copper and aluminium (see page 59) 
 explains why. Several United States transmission companies even 
 went so far as to replace already existing aluminium lines with copper 
 for economic reasons. The following are notable examples: 
 
 Rochester (N.Y.) Railway and Light Co. " Arrangements have 
 been made by the Rochester (N.Y.) Railway and Light Company to 
 substitute No. stranded copper wire for the 428,000-circ. mil. 
 stranded aluminium conductors of a duplicate three-phase trans- 
 mission line between Mortimer, N.Y., and the city of Rochester." 
 The aluminium transmission line was built in 1907 and designed to 
 transmit 18,000 h.p. This capacity has been reduced by the change 
 in conductors to about 12,000 h.p., which is considered sufficient for 
 future service. With the price of aluminium at 56 cents per pound 
 and copper at 20 cents per pound the basis on which the substitution 
 was made a net amount of $8,400 has been realized from 63,000 
 pounds of aluminium through the change.* 
 
 Northern California Power Co. " On account of the present 
 abnormally high price of aluminium, and also because it has deemed 
 it advisable to increase the capacity of certain of its transmission 
 lines, the Northern California Power Company, Consolidated, of San 
 Francisco, has taken down some of its aluminium wire and substituted 
 therefor copper wire. The proceeds from the aluminium wire taken 
 down have been sufficient to cover the cost of copper wire of greater 
 capacity together with the labour and other costs involved. The 
 company has made this change from aluminium to copper wire on its 
 high-tension lines between Hamilton City and Nord, a distance of 
 about 9 miles, and between Hamilton City and Chico, a distance of 
 about 13 miles. It is at present engaged in making a similar change 
 from Hamilton City toward Butte City, a distance of about 20 miles, 
 and, as soon as this is finished, it will change the line from Orland 
 northerly, a distance of about 30 miles. "f 
 
 Montana Power Co. " Recently advantage has been taken of 
 the high price of aluminium by the Montana Power Company in the 
 reconstruction of transmission lines from its power stations on the 
 Madison river to Butte. Originally three 50,000-volt lines were 
 constructed between these points, two of them using aluminium 
 conductors on wood poles and one No. copper on steel towers. 
 The steel tower copper line has been re-insulated for 100,000 volts 
 and the aluminium lines abandoned. General Manager F. M. Kerr 
 of the Montana Power Company gives the cost of re-insulating the 
 
 * Electrical World, Dec. 25, 1915. 
 t Electrical World, Feb. 19, 1916.
 
 64 
 
 60 miles of tower line as approximately $17,000, with a salvage on 
 aluminium from the other two lines at 52 cents a pound f.o b. Butte 
 railway station, of approximately $60,000."* 
 
 Respecting the proportion of aluminium and copper used in high 
 tension lines, 70,000 volts and over data compiled from a tabular 
 statement in the Electrical World\ show that, in 1914, North America 
 had some 7,000 wire-miles of aluminium against some 19,000 wire- 
 miles of copper in use on lines operating above this voltage. In other 
 parts of the world, the table shows no aluminium used on lines of over 
 70,000 volts. This is partly owing to the fact that there are compara- 
 tively few lines outside of America operating under these higher 
 voltages, but aluminium is also extensively used on the shorter lines 
 found there, notably in Norway, Sweden and New Zealand. 
 
 Canada probably has in use a greater proportion of aluminium 
 lines than any other country. A recent survey by the Commission of 
 Conservation shows that on all lines in the Dominion, operating at 
 10,000 volts and over, there are 13,000 wire-miles of aluminium and 
 8,000 wire-miles of copper. 
 
 * Electrical World, Feb. 24, 1917. 
 t Electrical World, April 25, 1914.
 
 65 
 
 APPENDIX II 
 
 Order in Council, 2nd September, 1918, re Application of St. 
 Lawrence River Power Co. 
 
 P. C. 2144 Certified copy of a Report of the Committee of 
 the Privy Council, approved by His Excellency the Governor General 
 on the 2nd September, 1918. 
 
 The Committee of the Privy Council have had before them a 
 report, dated 31st August, 1918, from the Right Honourable Sir 
 George E. Foster, Acting Secretary of State for External Affairs, 
 submitting that there has recently been before the International 
 Joint Commission an application of the St. Lawrence River Power 
 Company, a corporation of the state of New York, for the approval 
 of a project to construct certain works in the South Sault channel of 
 the St. Lawrence river, an international navigable boundary water; 
 that, as a result of this proceeding, a situation has arisen that may 
 seriously affect Canadian interests; and that, for the reasons set 
 out in the Memorandum hereto annexed, it is desirable that the whole 
 matter should be made the subject of direct discussion and settlement 
 with the Government of the United States. 
 
 The Minister, therefore, recommends that representatives of 
 this Government be delegated and empowered to approach the United 
 States Government, through the appropriate channel, and to enter 
 into negotiations upon the matter with representatives of that 
 Government upon the basis of the annexed memorandum. 
 
 The Committee concur in the foregoing recommendation and 
 submit the same for approval. 
 
 RODOLPHE BOUDREAU 
 
 Clerk of the Privy Council 
 
 MEMORANDUM 
 
 The St. Lawrence River Power Company, a corporation of the 
 state of New York, has made, under what is conceived to be the 
 authority of the Treaty of January 11, 1909, between the United 
 States and His Majesty the King, an application to the International 
 Joint Commission for the approval of a project to construct a sub- 
 merged weir in the South Sault channel of the St. Lawrence river. 
 The South Sault channel is an international boundary water, and 
 the Governments of Canada and the United States having appeared 
 by counsel in the proceeding and the hearing thereon, certain ques- 
 tions have arisen that affect not only the treaty relations between 
 Canada and the United States and the powers of the International 
 Joint Commission, but also the prosecution of the European war. 
 For the reasons hereinafter indicated, it appears desirable that the 
 matter should be made immediately the subject of direct consultation 
 and negotiation between the two Governments. 
 
 The position, as reported by counsel for the Canadian Govern- 
 ment, may be here summarized. In September, 1917, the St. Law- 
 
 598755
 
 66 
 
 rence River Power Company applied for and secured permission from 
 the Secretary of War of the United States to undertake certain works 
 in the South Sault channel, namely, to dredge a channel through 
 what is known as Dodge shoal, to construct a moveable ice boom 
 and to extend to Long Sault island, by means of a submerged weir, 
 the jetty or deflecting dyke already existing in the South Sault 
 channel. It was stated that the object in view was, through the 
 effect of these works on the river ice formations, to secure during the 
 winter season an increased development of hydro-electric power 
 in the company's power plant at Massena, New York, which is 
 dependent for its operation upon a diversion of the waters of the St. 
 Lawrence river. The construction of the submerged weir was only 
 permitted by the Secretary of War subject to the approval of the 
 International Joint Commission; the other works, however, were 
 approved, without the knowledge of the Canadian Government and 
 without any reference to the Commission, and have in whole or in 
 part been proceeded with. 
 
 Although the immediate completion of all these works has been 
 represented as being highly desirable and even urgently necessary, 
 almost a year was allowed to elapse before the St. Lawrence River 
 Power Company took steps to fulfil the condition imposed by the 
 Secretary of War in respect of the proposed submerged weir; it was 
 not until August 9, 1918, that the company's plans and application 
 for approvai thereof were filed at the offices of the International Joint 
 Commission at Washington. Thereafter, on August 12, before any 
 notice of the application had been formally served upon the Canadian 
 Government, counsel for the United States Government presented 
 a motion before the International Joint Commission in the course of 
 a hearing upon another, matter, praying that the hearing on the 
 application should proceed at that session, notwithstanding the 
 Commission's rules of procedure, which require notice and publication 
 of the application and provide for a considerable period for the filing 
 of counter statements. In support of his motion, counsel represented 
 on behalf of the United States that the St. Lawrence River Power 
 Company was supplying the electrical power essential to its parent 
 corporation, the Aluminum Company of America, one of the world's 
 chief producers of aluminium; that the proposed works would result 
 in an increased production of aluminium during the coming winter 
 months estimated at six million pounds; and that this increased 
 production was urgently necessary for the purposes of the Government 
 of the United States and the Allies in the prosecution of the war. 
 Counsel, therefore, urged that it should be made possible to hold an 
 immediate hearing on the merits of the application. 
 
 Counsel for the Canadian Government, having had no oppor- 
 tunity to secure instructions, opposed the motion, dedaring at the 
 same time the readiness of his Government to co-operate in all 
 necessary war measures and urging that the maitter was more property 
 one for direct consultation between the Governments 
 
 After consideration, the International Joint Commission ordered 
 the suspension of the rules and fixed the hearing of the application 
 for August 29 at Montreal.
 
 67 
 
 At the hearing at Montreal counsel for the United States, for the 
 first time, came forward with a definite request that the application 
 should be granted forthwith as an urgent war measure, and presented 
 in support thereof a letter from the Secretary of War of the United 
 States. Counsel for Canada submitted, and argued in support of, 
 a statement presented to the Commission, copy of which is attached 
 hereto. It was contended that, under existing treaties, the Commission 
 was without power to grant the approval sought ; and the suggestion 
 was repeated that, in any case, the proper and more expeditious pro- 
 cedure was that of direct negotiation between the two Governments, 
 and the Government of Canada was prepared to enter upon such nego- 
 tiation immediately. 
 
 The International Joint Commission has taken the application 
 under advisement until September 12, when it is possible, though, 
 of course, not certain, that a decision may be announced. It was 
 urged at the hearing that, unless the proposed work was commenced 
 before September 15, there would be a risk that it could not be 
 finished before the winter. 
 
 Having regard both for the necessity of securing the most effective 
 prosecution of the war and for the great desirability of a wise regu- 
 lation of the boundary water system between Canada and the United 
 States, it is believed that the procedure pursued in this matter is not 
 calculated to result in a mutually satisfactory solution. The Gov- 
 ernment of Canada is strongly convinced that some other and more 
 direct means of settlement should be sought; and in this conviction 
 it submits the following considerations and suggestions: 
 
 1. Article VII of the Webster- Ashburton Treaty of 1842 declares 
 "that the channels of the river St. Lawrence on both sides of Long 
 Sault islands and of Barnhart island * shall be 
 equally free and open to the ships, vessels and boats of both parties." 
 This declaration, relating as it does specifically to the South Sault 
 channel, clearly prohibits the construction of the proposed submerged 
 weir, which admittedly would prevent all navigation through this 
 channel. So far as the Treaty of January 11, 1909, goes to the 
 question, it is equally conclusive against the project. Article VIII 
 lays down an order of precedence to be observed among the various 
 uses for boundary waters enumerated therein, and declares that "no 
 use shall be permitted which tends materially to conflict with or 
 restrain any other use which is given in preference over it in this 
 order of precedence." In the order of precedence that follows "uses 
 for navigation" are given preference over "uses for power and for 
 irrigation purposes." The construction of the proposed submerged 
 weir is sought purely for power purposes, and, as such, it must be held 
 to be prohibited by Article VIII, since it would not only "tend 
 materially to conflict with or restrain" but it would wholly prevent 
 the use of this channel of the St. Lawrence river for navigation. 
 Clearly, therefore, the International Joint Commission is without 
 power to approve the proposed structure, and it is apparent that the 
 application, if pressed as at present, must fail. 
 
 2. It is true that the project in question might have been put 
 forward in such a manner that it could properly have become the 
 
 59875 5i
 
 68 
 
 subject of inquiry and recommendation by the International Joint 
 Commission. In the turn which the proceeding actually took, the 
 United States Government became in effect the real party; the case 
 became in substance a United States Government matter. Such a 
 case might properly have been referred to the International Joint 
 Commission for inquiry and report under Article IX of the Treaty 
 of January 11, 1909; for it is under this Article that governmental 
 matters or projects should be submitted to and considered by the 
 Commission. It need only be added here that the Government of 
 Canada was prepared from the beginning to entertain such a course 
 and to assist in every possible way in carrying it out. 
 
 3. As already intimated, the Canadian Government is not 
 unmindful of the considerations of urgency advanced in this matter 
 on behalf of the Government of the United States; it is not only 
 ready, but is very anxious to do everything in its power to promote 
 in every sphere of endeavour the most effective and harmonious 
 co-operation in the prosecution of the war, in which the two Govern- 
 ments are associated under common ideals against a common foe. 
 
 4. For this great purpose the Canadian Government recognizes 
 that, in view of the near approach of the winter season, it is highly 
 desirable that a speedy conclusion should be reached upon" the 
 question of the necessity for the construction of the proposed works 
 in the South Sault channel. To this end the Canadian Government 
 would suggest that the whole matter should be withdrawn from the 
 purview of the International Joint Commission and be made imme- 
 diately the subject of diplomatic negotiation between the two Govern- 
 ments. This suggestion is advanced in the belief not only that it 
 will, if accepted, conduce to a speedy conclusion of the matter, but 
 that it is more appropriate that all proposed measures of co-operation 
 in respect of the war should be discussed in this manner rather than 
 through the medium of the International Joint Commission. In the 
 view of the Canadian Government it was never contemplated that the 
 machinery of this Commission should be used for the settlement of 
 such unusual executive measures as present themselves to the two 
 Governments in the extraordinary emergency that confronts them 
 to-day; rather the Commission was designed to promote, for perman- 
 ent and comprehensive application, the establishment of a system 
 of principles under which a great natural highway, common to the 
 two countries, might be wisely and deliberately developed for the 
 common benefit. The circumstances in which the present matter 
 has been brought forward and heard need only be recalled to show 
 how little calculated they are to afford to the Commission the oppor- 
 tunity for careful and fully informed consideration that is so essential 
 to the fulfilment of the Commission's real purpose. 
 
 5. If, therefore, the United States Government still considers 
 that the proposed works ought to be constructed as a war measure, 
 the Government of Canada is prepared to enter into immediate 
 discussion upon the matter, and to that end it would propose the 
 following as a basis: 
 
 (a) If the Government of the United States is satisfied 
 that, unless the proposed works are constructed in the South
 
 69 
 
 Sault channel, there must necessarily be a substantial shortage 
 in the supply of aluminium for the purposes of the United States 
 and the Allies in the prosecution of the war, the Government of 
 Canada will assent to the proposed construction as a war 
 measure. In pursuance of this undertaking, the present appli- 
 cation of the St. Lawrence River Power Company to the Inter- 
 national Joint Commission should be withdrawn. 
 
 (b) The terms upon which the proposed works shall be 
 constructed shall be agreed upon at a conference between repre- 
 sentatives of the two Governments delegated and empowered 
 for this purpose. 
 
 (c) In order that the South Sault channel may be restored 
 to its present status, the terms should include a provision to the 
 effect that the submerged weir, if constructed, shall be removed 
 within twelve months after the conclusion of the European war. 
 
 (d) There shall not be diverted from the St. Lawrence 
 river by the St. Lawrence River Power Company a greater 
 quantity of water daily than is at present being so diverted. 
 This paragraph is not to be construed as admitting any right 
 on the part of the St. Lawrence River Power Company, or of any 
 other person or corporation, to divert water from the St. Lawrence 
 river. 
 
 (e) The Canadian Government, being advised that it 
 would be possible to develop some seven hundred thousand 
 horse-power from the waters of the St. Lawrence river in the 
 vicinity of the Long Sault rapids, and recognizing that any such 
 development could only proceed under agreement between the 
 two countries, proposes for consideration that the two Govern- 
 ments should take immediate steps jointly to prepare a scheme 
 looking to such power development in the interests of the two 
 countries. In the light of this possibility the Canadian Govern- 
 ment is strongly of the opinion that no permanent project by 
 private interest should be permitted at this time that would 
 prevent or interfere with the carrying out of such a joint pro- 
 gramme by the two countries. 
 
 6. In conclusion, the Government of Canada earnestly trusts 
 that, by means of such a conference between the two Governments as 
 is here proposed, some mutually satisfactory solution of the matter 
 may be reached; for it would look with grave concern upon any 
 casual or hastily considered project that might have serious results 
 upon the navigability of the great highway that constitutes Canada's 
 main artery of communication and commerce. In this connection 
 the Canadian Government would welcome further information con- 
 cerning the circumstances and authority under which the dredging 
 of Dodge shoal in the South Sault channel, hereinbefore referred to, 
 was undertaken; for, even although it should appear, as alleged, 
 that this change in the river bed will have no effect upon the naviga- 
 bility of the St. Lawrence river, yet, in the view of this Government, 
 it is highly desirable, in the interest of the establishment of sound 
 principles and rules for the development of the common boundary 
 waters, that such projects of private companies should be submitted
 
 70 
 
 in advance to the International Joint Commission. The Canadia* 
 Government, which is advised that this dredging has already had 
 the serious effect of lowering by at least five inches the water at the 
 head of the Cornwall canal, reserves for further attention any rights 
 in respect thereof under existing Treaties. 
 
 A similar reservation is made in respect of the proposed ice-boom 
 the construction of which is apparently contemplated without any 
 consultation with the Canadian Government or reference to the 
 International Joint Commission. 
 
 OTTAWA, August 31, 1918.
 
 71 
 
 APPENDIX III 
 
 Argument of Hon. Hugh Guthrie,* Solicitor General for the 
 Dominion of Canada 
 
 Hon. Mr. GUTHRIE: Representing the Government of Canada 
 in this matter, there is not, in my opinion, very much between us 
 upon the facts, and my submission is that, upon the admitted facts, 
 upon the statement of the case which has been put in by the applicant 
 company, there is no power in the International Joint Commission 
 to approve this order; and, if there were such power, I do not think 
 in their discretion they should approve it. 
 
 We rely, of course, in that position, in the first place, upon what 
 we consider our absolute treaty rights. The Treaty of 1842, com- 
 monly known as the Ashburton Treaty, is still a treaty in full force 
 and effect. It is the treaty which delimits the boundary lines 
 between Canada and the United States. Of its very nature it is a 
 permanent and binding arrangement, and was reached after a long 
 discussion by the two countries. It is an arrangement which was 
 come to upon consideration valuable consideration. The preamble 
 of the treaty itself recites that it is an arrangement made with such 
 equivalents and compensations as are deemed just and reasonable. 
 Where Canada yields a point in a particular instance, the United 
 States yields a point in another instance. It is founded, therefore, 
 upon equivalents and compensation. A treaty of that nature must 
 be looked on as a very sacred international bargain which cannot 
 lightly be broken, varied or altered. 
 
 Now, Article VII of the Treaty is very explicit in regard to the 
 channel of the St. Lawrence at Long Sault island. Those terms 
 which apply to the Long Sault channels read as follows : 
 
 " It is further agreed, that the channels in the river St. Lawrence, 
 on both sides of the Long Sault islands, * * * shall be equally 
 free and open to the ships, vessels, and boats of both parties." 
 
 There are three requirements of that section with regard to both 
 of those channels. The first is that they shall be equal, that is, the 
 usage of them. Next, they shall be free, and, next, they shall be open. 
 It is interesting to note just a point in regard to the use of that word 
 "equally." There has been some comment on the use of the word. 
 If I understand rightly the contention of my learned friend, Mr. 
 Koonce, when the matter was before this Commission at Atlantic 
 City, he sought to argue that "equally" meant merely that there 
 shall be no discrimination ; that the South branch of the Long Sault 
 might be closed so long as it was closed against all parties, because 
 then there would be an equality of non-user which would satisfy the 
 language of the treaty. I am unable to agree with any such view of 
 plain language, and I am satisfied it would be nothing short of a 
 
 'Argument of Hon. H. Guthrie on behalf of the Dominion of Canada at the Hearing before the 
 International Joint Commission of the application of the St. Lawrence River Power Company, Mon- 
 treal, August 29, 1918.
 
 72 
 
 distortion of words to put such a construction upon it. But the word 
 "equally" has a history. In the original draft of the treaty the word 
 "equally" did not appear, and in other sections of the treaty the 
 word "equally" does not appear with regard to the New Brunswick 
 waters. 
 
 Mr. MIGNAULT : Can you suggest, Mr. Guthrie, why it was put in? 
 
 Mr GUTHRIE: Yes, I am going to suggest why it was put in. 
 Would you permit me to proceed, because that is the point I am 
 making. The word "equally" did not appear in the first draft. 
 Now, this is a matter, perhaps, of some slight importance. It is an 
 historical point anyway. In The Works of Daniel Webster, published 
 by the well known house of Little, Brown & Company, of Boston, in 
 1856, we get some light upon the question as to how the word 
 "equally" came to be inserted. 
 
 Mr. MIGNAULT: Will you give me the reference, please? 
 
 Mr. GUTHRIE: The reference is to Volume VI of The Works of 
 Daniel Webster, published by Little, Brown & Company, of Boston, 
 in 1856, at page 282. The first reference is to a letter written by Lord 
 Ashburton and addressed to the Honourable Daniel Webster on July 
 16, 1842. In this letter, Lord Ashburton enters a mild protest or 
 suggestion that, under certain circumstances, the passage of a British 
 vessel through the Long Sault channels might be refused, and he 
 suggests : 
 
 "We want a clause in our present treaty to say that, for a short 
 distance, namely from the upper end of Upper Long Sault island to 
 the lower end of Barnhart's island, the several channels of the river 
 shall be used in common by the boatmen of the two countries." 
 
 Mr. Webster replied to that letter in a communication dated 
 July 27, 1842. From his letter I read the following, at page 284: 
 
 " Besides agreeing upon the line of division through which these 
 controverted portions of the boundary pass, you have suggested also 
 as the proposed settlement proceeds upon the ground of compromise 
 and equivalents, that boats belonging to Her Majesty's subjects may 
 pass the falls of the Long Sault, in the St. Lawrence, on either side 
 of the Long Sault islands, and that the passages between the islands 
 lying at or near the junction of the river St. Clair with the lake of 
 that name shall be severally free and open to the vessels of both 
 countries." 
 
 Mr. Webster's interest was in the Detroit river. It happened 
 that, near Detroit, the channel passes through Canadian waters. He 
 saw that, if the clause were [not] made plain and the treatment for both 
 countries made equal, it might afterwards be contended that the 
 important channel at Detroit was wholly in Canadian waters, and 
 that might not accord equal treatment to the ships of the United 
 States. He agreed that the matter shall be straightened out, and, 
 toward the end of his letter, he says: 
 
 "It being understood that all the water communications and all 
 the usual portages, along the line from lake Superior to the lake of 
 the Woods, and also Grand portage from the shore of lake Superior 
 to the Pigeon river, as now actually used, shall be free and open to the 
 use of the subjects and citizens of both countries." 
 
 At the close of Lord Ashburton's letter of July 29, 1842, he says:
 
 73 
 
 " I should remark, also, that the free use of the navigation of the 
 Long Sault passage on the St. Lawrence must be extended to below 
 Barnhart's island, for the purpose of clearing those rapids." 
 
 At page 352 of the same volume, in President Tyler's Message 
 transmitting the Ashburton Treaty to the Senate, it is said : 
 
 "So, again, there are several channels or passages, of different 
 degrees of facility and usefulness, between several islands in the river 
 St. Clair, at or near its entry into the lake of that name. In these 
 three cases, the treaty provides that all the several passages and 
 channels shall be free and open to the use of the citizens and subjects 
 of both parties." 
 
 After the draft treaty, which is said in this work to be in the 
 handwriting of Mr. Webster, and it had been transmitted by Presi- 
 dent Tyler to Congress, the word " equally " was inserted, and it is 
 said here in the handwriting of Mr. Webster:* To make plain and 
 clear that the usage and rights of those waters specifically mentioned 
 in Article VII of the treaty should be equally free and equally open 
 to the ships, vessels, and boats of both parties. Mr. Webster's in- 
 terest being at Detroit rather than in the St. Lawrence, and the 
 interest of Lord Ashburton, according to his original letter, being 
 more particularly in regard to the St. Lawrence and St. Clair rivers. 
 
 That is so plain a declaration, in so prominent a document as an 
 international treaty, that I do not see how any tribunal or any court 
 could vary it or set it aside in any way ; but, on the contrary, it must 
 be bound by it and give it due effect. 
 
 Now, it was suggested in the argument of my learned friend, Mr. 
 Koonce, that perhaps it had been superseded. 
 
 Mr. TAWNEY: Before you leave that, may I ask you a question? 
 Do you contend that the word "equally" applies to any right other 
 than that of the right of navigation? 
 
 Mr. GUTHRIE: It shall be "equally free and open." 
 
 Mr. POWELL: To the ships, vessels and boats? 
 
 Mr. GUTHRIE: Yes; to the ships, vessels and boats. 
 
 Mr. POWELL: That is a limitation. 
 
 Mr. GUTHRIE: For the moment I would think that navigation 
 would be the only thing in their minds. At that time, the develop- 
 ment of power would hardly have been present in their minds. 
 
 Mr. POWELL: The limitation to navigation means exclusion of 
 everything else. 
 
 Mr. GUTHRIE: "Ships, vessels and boats" is as broad a term 
 applying to navigation as I think it could well frame. It would 
 include all the craft that were known at that time. 
 
 Mr. MIGNEAULT: It might include the right to fish in these 
 waters? 
 
 Mr. GUTHRIE: No; I do not think the free rights to boats would 
 include a fishing right. 
 
 *Owing to the defective accoustics of the room in which the hearing was held, 
 this sentence was mis- reported. Mr. Guthrie's statement was about as follows: 
 
 " Before the draft treaty, with the accompanying message which is stated in 
 this work to have been written by Mr. Webster-^-had been transmitted by Presi- 
 dent Tyler to Congress, the word 'equally' was inserted and it is stated here in 
 plain and clear language that the usage and rights of those waters" etc. (Ed.)
 
 74 
 
 Now, it has been suggested that that treaty has, in some way, 
 been superseded by the subsequent treaty under which the Inter- 
 national Joint Commission has been established. 
 
 Mr. MIGNEAULT: There was a treaty of Washington in, I think, 
 1871, which refers to the right of navigation. 
 
 Mr. GUTHRIE: There is some reference to it but not as affecting 
 this portion of the river. 
 
 Mr. POWELL: What section of the treaty of 1871 applies to the 
 navigation of the St. Lawrence river? 
 
 Mr. KOONCE: Article XXVI. 
 
 Mr. GUTHRIE: That applies to navigation below Corn wall. It does 
 not affect this matter at all. Now, the treaty of 1909 was a treaty, 
 as stated in the preamble, made between the United States of America 
 and the King of Great Britain " to prevent disputes regarding the 
 use of boundary waters and to settle all questions which are now 
 pending between the United States and the Dominion of Canada 
 involving the rights, obligations, or interests of either in relation to 
 the other or to the inhabitants of the other, along their common 
 frontier, and to make provision for the adjustment and settlement 
 of all such questions as may hereafter arise." 
 
 Under that treaty this Commission, under Article VII, was 
 established, and, by Article VIII, the jurisdiction of this Commission 
 was also established. There is nothing in the treaty of 1909 to confer 
 jurisdiction upon this body save what is set out in Article VIII. It 
 is the only article which confers jurisdiction, Article VII being the 
 article which constitutes the body. Article VIII says: 
 
 "This International Joint Commission shall have jurisdiction 
 over and shall pass upon all cases involving the use or obstruction or 
 diversion of the waters with respect to which under Articles III and 
 IV of this treaty the approval of this Commission is required, and in 
 passing upon such cases the Commission shall be governed by the 
 following rules and principles * * * ." 
 
 Now, there are only two classes of cases which would come before 
 this Commission brought here by private parties. I do not refer to 
 those cases which may be referred to by the Governments. It is clear 
 that this case does not come under Article IV or have any bearing 
 upon Article IV, because that applies only to waters flowing out of 
 natiortal waters. So it must come under Article III if it comes at all. 
 Article III reads as follows: 
 
 "It is agreed that, in addition to the uses, obstructions, and 
 diversions heretofore permitted or hereafter provided for by special 
 agreement between the Parties hereto, no further or other uses or 
 obstructions or diversions, whether temporary or permanent, of 
 boundary waters on either side of the line, affecting the natural level 
 or flow of boundary waters on the other side of the line, shall be made 
 except by authority of the United States or the Dominion of Canada 
 within their respective jurisdictions and with the approval, as here- 
 inafter provided, of a joint commission, to be known as the Interna- 
 tional Joint Commission." 
 
 That, I take it, means and I submit that this is a correct 
 meaning of the sentence that if, in any case, the United States or 
 the Dominion of Canada seeks to make any change in its own water
 
 75 
 
 or waters under its own jurisdiction, they may do so provided they 
 obtain the approval of this Commission ; but, in doing so, they must 
 not transgress Article I. Article I says: 
 
 "The High Contracting Parties agree that the navigation of all 
 navigable boundary waters shall for ever continue free and open for 
 the purposes of commerce to the inhabitants and to the ships, vessels 
 and boats of both countries equally, subject, however, to any laws 
 and regulations of either country, within its own territory, not 
 inconsistent with such privilege of free navigation, and applying 
 equally and without discrimination to the inhabitants, ships, vessels 
 and boats of both countries." 
 
 The moment there is interference with what the article calls 
 "privilege of free navigation," then neither country has any juris- 
 diction in its own international waters, or its own territorial waters, 
 to do any act. Both countries might, if they saw fit, refer such a 
 matter to this Commission under other sections of this treaty. But, 
 until that is done and it would have to be done by both countries 
 neither one nor the other can do any act which will be inconsistent 
 with such "privilege of free navigation." That, I submit, makes the 
 old treaty power rights stronger than they were in the original. It 
 does not supersede it in any way. It does not destroy or annul or 
 alter it. But, by Article VIII, it is expressly provided that the fore- 
 going provisions shall not apply to or disturb any existing uses of 
 boundary waters. One of the uses of boundary waters is the use of 
 navigation. That is a use, and it is so described in Article VIII. The 
 three uses that are there permitted, and the priority in which they are 
 permitted, are stated to be, first, " for domestic and sanitary pur- 
 poses "; second, " uses for navigation, including the service of canals 
 for the purposes of navigation "; and, third, " uses for power and for 
 irrigation ". Navigation is a use and there is an express limitation 
 in Article VIII that the foregoing provision that is the provision 
 which confers jurisdiction on this Board shall not apply to or disturb 
 any existing uses ; and the existing use that we rely upon in this case 
 is the use of navigation which was conferred on us by the Ashburton 
 Treaty, Article VII of which provides that this particular branch of 
 this particular river shall be kept " free and open to the ships, vessels, 
 and boats ", of both countries. 
 
 Mr. TAWNEY: Do you observe in Article I that the limitation 
 there is to navigable boundary waters? 
 
 Mr. GUTHRIE: Yes. 
 
 Mr. TAWNEY: Do you make any distinction between navigable 
 and non-navigable boundary waters? 
 
 Mr. GUTHRIE: I do not make the distinction, but notice that 
 the words "navigable boundary waters" are there, and I submit that 
 any water that is capable of navigation is navigable water. The 
 fact that ships do not ply does not affect the question of whether the 
 water is navigable or not. We have in Canada many rivers and 
 lakes upon which ships never ply. But there is deep water and some 
 day they might be used. Certainly it is abundantly proved by my 
 learned friends themselves that this stream, the South Sault, was 
 used for commercial purposes. It was used for pleasure boat pur- 
 poses. It was used for excursion boat purposes, which is a combina-
 
 76 
 
 tion of business and pleasure. Until the railway came in there, it 
 was more or less common. It was navigable and it is navigable 
 to-day. But the evidence seems pretty clear that there was very 
 little traffic on it ; perhaps none except the motor boats and launches. 
 There were the docks. One of the witnesses said, "There is a wharf 
 at my place; there is another at Dodge shoal, and there is another 
 a little higher up." He also said, "Freight used to come down, but 
 the railways changed all that." 
 
 Mr. MAGRATH: Do you think it would be necessary to go both 
 ways to cause it to be navigable? 
 
 Mr. GUTHRIE: We can go both ways. 
 
 We have in the South Sault an alternate route. I do not say it 
 is the best route. Let us have an ice jam in the North Sault; let us 
 have a gate on one of our locks thrown out of commission; we have 
 the alternative channel, and we do not want it blocked. But there 
 is a larger view of it even than that and the larger view is this: Some 
 day and I trust soon there will be a power development and a dam 
 across the North Sault. It has to be an international work, I assume. 
 Then it becomes all the more important to have the South Sault as 
 a navigable channel. 
 
 Mr. POWELL: That is an argument addressed to our discretion. 
 
 Mr. GUTHRIE: Yes; I am only pointing out the importance of 
 it in this. I am not yielding a point in regard to our rights under the 
 treaty. Now, my information is that the Government has in con- 
 templation the construction of a dam across that North Branch. 
 It will have to be undertaken internationally, I assume, with the 
 concurrence of the United States. Probably it may be referred to 
 your Commission for settlement. But, if such a work is undertaken, 
 and the North channel is closed, the South channel becomes all the 
 more important. You may say that the Richelieu and Ontario boats 
 are too large to come down it now, but all that is required there is a 
 lock to make navigation good. My point, however, is that the water 
 is navigable, and that is so abundantly proved that I do not think I 
 need labour the question. 
 
 Mr. POWELL: There is one thing that bothers me, and I think 
 the case is stronger in your favour than you are putting it, because 
 the two High Contracting Parties in their language in the Ashburton 
 Treaty have recognized this very division of the water as navigable 
 and provided for it. 
 
 Mr. GUTHRIE: I would not expect for a moment that I could 
 put it in language as strong as the treaty. I am relying on the treaty 
 but I am trying to point out some of the reasons for the great import- 
 ance of this question to the Government of Canada. The thing that 
 is also important and should not be lost sight of is this: That this 
 very concern, this Aluminum Company of America, with one of its 
 subsidiary companies, known as the Long Sault Development Com- 
 pany, attempted the very thing that the Government wants to do. 
 They tried to get the right to build a dam across there and they did 
 get the right from the State of New York, but, subsequently, that 
 right was taken away by the State of New York and the matter got 
 to the courts and to the Supreme Court of the United States.
 
 77 
 
 When the Long Sault Development Company got its charter 
 to construct that dam it was a very broad one. They set out that 
 " the rights hereby granted shall never be so used as to impair or 
 obstruct the navigation of the St. Lawrence river, but, on the contrary, 
 that such navigation shall be preserved in as good condition as, if not 
 better than, the same is at present, regard being always had to the 
 amount of the natural flow of water in said river as affecting its 
 navigability from time to time." 
 
 Now, New York State undertook to grant lands under the South 
 Sault to this company. It was held by the United States Supreme 
 Court that they could not do so, but, all through, the Development 
 Company took the position that it was navigable water and they were 
 going to actually improve it. Their charter certainly forbade them 
 injuring the navigation, and I point out also to the Commission that 
 in every permit issued at Washington the navigation of the river has 
 been recognized because the clause has been put in that they must 
 not injure navigation. The three permits contain the clause. The 
 charter the St. Lawrence Power Company obtained from the State 
 of New York has the same clause they must not injure navigation. 
 The navigation has been recognized. As I said before, though, the 
 matter has been so clearly proven and demonstrated here that I 
 need not argue the question any further. 
 
 Now, I go back to the treaty, and, as one of the Commissioners 
 remarked, that is certainly our strongest ground. That is the ground 
 that we rely on as a bar to any action by this Commission in regard 
 to this application. I stated in the beginning that, in the opinion of 
 the Government of Canada, the Commission had no jurisdiction. 
 Whether I used the word "jurisdiction" correctly or not may be open 
 to question, but certainly I am putting it on fair grounds when I say 
 that the Commission has no right to do it. We claim a treaty right. 
 If that Article VII of the Ashburton Treaty does not give the people 
 of this country free and open right to those channels for the ships, 
 vessels and boats of this country, if this Commission has power to 
 close that channel by this dam, it can close the Detroit river; it can 
 close the St. Lawrence river. Where is it going to stop? This Gov- 
 ernment relies on that treaty. It looks on it as sacred, and it claims 
 its rights under it. Treaties must be respected. The whole world 
 is convulsed with a war now because a nation in a moment of madness 
 undertook to deny treaty rights. We want every right that is given 
 to us under that treaty. For that reason we ask this high tribunal 
 not to seek to vary it, not to deny our right in a single particular, 
 but to keep open and free that channel specifically mentioned in 
 Article VII. 
 
 Now, as I said yesterday, the Government of Canada is not 
 disposed to play dog in the manger in this matter. We have no such 
 desire and no such wish. I think it would perhaps have been better 
 if my learned friend, Mr. Koonce, yesterday, had obtained a letter 
 from the Secretary of War directed to the Government at Ottawa 
 instead of to this Commission, asking that this matter be taken up. 
 I can assure him it would have been taken up and would be yet, and 
 the shortest cut to obtain the relief in this matter is for the Govern-
 
 78 
 
 ment of the United States it being the party who should negotiate 
 proceedings to communicate at the earliest possible moment with the 
 Government of Canada, in order not only that the whole of the greater 
 question may be discussed but that this particular difficulty may be 
 discussed with a view of making it operative and satisfactory for 
 purposes of the present war and at the earliest moment of time. My 
 learned friend suggests that that means delay. They do not want it. 
 The president of their company does not want it. It takes time and 
 can never be done. If the United States wants it done I have 
 authority to say : Let them apply to Canada and the question of delay 
 in adjusting these matters will not be the fault of Canada. 
 
 Mr. KOONCE: Will you please state how that can be brought 
 about? 
 
 Mr. GUTHRIE: Let the Secretary of War send a telegraphic 
 communication to Sir Robert Borden, and two men can settle this 
 matter in an hour. We are dealing with the Government of the 
 United States and not with a very weighty private corporation, and 
 that is a very grave distinction. I submit to you that, if this dam 
 were to go in and become the property of this private company, it 
 will never come out and that the river will be blocked. I heard it 
 suggested by counsel, "Suppose it were put in and we rip it out at 
 the end of the war." If it goes in it will never come out. The 
 company is too strong. Three or four years from now they will say, 
 "Look at the money we have spent. Leave it there." We want to 
 be in a position of dealing fairly and squarely with the Government 
 of the United States, because we apprehend that this is an interna- 
 tional matter. If the two Governments should refer it to this Com- 
 mission and I think probably they would refer the greater question 
 to this Commission all well and good. Your jurisdiction would then 
 be complete, but, in the meantime, my suggestion I can only make 
 it as a suggestion is that my learned friend Mr. Koonce should use 
 the telegraph wires and ask his Government to make an intimation 
 and I am sure that in a few hours it will receive a reply and, if a 
 commission will come to Canada, or we go to Washington, this particu- 
 lar matter will be dealt with satisfactorily to both Governments, and 
 the lack of production needed for the war will not lie at the door of 
 Canada. My submission, to be very brief, is that, under the language 
 of the Ashburton treaty, Canada has treaty rights which must not be 
 interfered with. 
 
 Mr. TAWNEY: Pardon me for asking you one question with 
 reference to the construction of the Webster- Ashburton Treaty. It 
 may have some bearing upon this matter. Was there any protest 
 by Canada or by Great Britain to the diversion from the South 
 channel of the Long Sault of the water of that channel, or any part 
 of it, through the power canal of the St. Lawrence River Power 
 Company at the time that diversion was authorized by the United 
 States Government? 
 
 Mr. GUTHRIE: I am not in a position to answer that question, 
 but I was in the House of Commons, as was also a member of your 
 Commission, at the time this question occupied the attention of the
 
 79 
 
 House of Commons. That was in the year 1910, after the construc- 
 tion of the canal, and I can tell you that there was a very loud and 
 long protest on that occasion. 
 
 Mr. TAWNEY: That had relation, however, primarily, to the 
 development of power in the Long Sault, that is the North channel 
 of the Long Sault. 
 
 Mr. GUTHRIE : Yes, sir, it was charged that one led to the other. 
 
 Mr. TAWNEY : I wanted to know whether there was any protest, 
 either through diplomatic channels or otherwise, by either Canada 
 or the British Government with regard to the diversion which the 
 Government of the United States authorized from the South channel 
 at the time that diversion was authorized? 
 
 Mr. GUTHRIE: I am not in a position to answer the question 
 more than to say this, that I do not think the matter was ever brought 
 to the attention of the Dominion of Canada. That was before the 
 treaty of 1910. It may be that we did not consider that we had any 
 rights at that time. 
 
 Mr. TAWNEY: Well, you certainly had your rights under the 
 Webster-Ashburton Treaty, if this was a navigable water. 
 
 Mr. GUTHRIE: But the charter of the company says that they 
 were not to interfere with navigation. I suppose that, seeing that 
 before us, if we did see it, we could rely on it, but the fact that they 
 have taken half the water out of that South channel in breach of the 
 terms of that treaty surely does not give them the right to stop it 
 altogether. 
 
 Mr. TAWNEY: Not unless the other party acquiesces. 
 
 Mr. GUTHRIE: Well, we do not acquiesce; we protest and we 
 protest against the original construction on the ground that they 
 had no proper authority to make that construction. And as vigor- 
 ously as I can protest I do protest against that and against any 
 further construction. 
 
 Mr. POWELL: That word "free" is a technical term. 
 
 Mr. GUTHRIE : I find that the word " free " is about the broadest 
 
 Mr. POWELL: It is at once the broadest and the most constricted. 
 
 Mr. GUTHRIE: It has such meaning as unfettered, uncontrolled, 
 unhampered, uninterrupted, without let or hindrance. It is as 
 broad a word as you can use. 
 
 Mr. POWELL: Are those dictionary meanings? 
 
 Mr. GUTHRIE: Yes, but not all of them by any means. 
 
 Mr. POWELL: But what about this legal use? By a process of 
 evolution the original meaning of the word "free" has been departed 
 from until it can be more fairly described by saying that it was very 
 restricted. Take the law in respect to the use of the highway. Every 
 individual in the United States or Canada has a right to the free and 
 uninterrupted use of the highway. They have the free and uninter- 
 rupted use of a river. At the same time, a man using the highway 
 can back his cart in against the sidewalk as long as he does not 
 unreasonably interfere with the driving of others. A vessel can 
 anchor in a stream where another vessel may be beating against the 
 wind and have to get out of his way, and that other man has not a 
 free and uninterrupted use.
 
 80 
 
 Mr. GUTHRIE: Yes, he has. 
 
 Mr. POWELL: Not in the language of the dictionary. It is a 
 highly technical use of the word "free." 
 
 Mr. GUTHRIE: I certainly think that "free" would not permit 
 the building of a dam across the water. 
 
 Mr. POWELL: Is not this the case, that the free and uninterrupted 
 navigation of a river would not prevent the owner, if the owner had 
 such a right of soil in the bed of the river, from erecting therein the 
 pier stretching out, so long as it did not unreasonably interfere with 
 navigation, and that question of unreasonable right to navigation 
 will be tried out in a suit for what? For a nuisance. And the thing 
 would be whether it was reasonable or not. 
 
 Mr. GUTHRIE: I grant you that all things must be reasonable; 
 otherwise they would be a farce. 
 
 Mr. POWELL: If you go back to the Ashburton Treaty, you may 
 restrict the word "free" and adopt it as a highly technical term which 
 does not mean free as given by lexicographers; yet you cannot 
 restrict it to the point of absolute prohibition. 
 
 Mr. GUTHRIE: It has been argued that that word "free" means 
 untaxed or without charge, but the word "open" was put in to extend 
 it, and you have both words to deal with. So, if one foot is not on 
 strong ground the other foot is. 
 
 Mr. MIGNEAULT: The word "open" with the word "free" shows 
 that navigation should not be restricted. 
 
 Mr. POWELL: In the United States there was an island in the 
 centre, and the railway company was building two bridges the 
 right of free and uninterrupted navigation was invoked, and it came 
 before the Supreme Court of the United States in the way of getting 
 an injunction against the railway company for putting the bridge 
 over one branch of the stream and absolutely closing it. The 
 Supreme Court of the United States held that, inasmuch as there was 
 an ample and sufficiently capacious alternate route, the injunction 
 would not lie. 
 
 Mr. GUTHRIE: They did not have a treaty with another nation 
 that said both routes shall be open. 
 
 Mr. POWELL: If you had not the Ashburton Treaty the other 
 principle might come in. 
 
 Mr. GUTHRIE: I am making no suggestion of that kind at all. 
 We are relying upon the Ashburton Treaty.
 
 81 
 
 APPENDIX IV 
 INTERNATIONAL JOINT COMMISSION 
 
 In the matter of the Application of the St. Lawrence River 
 Power Company for the approval of the construction 
 and maintenance of a submerged weir in the South 
 Channel of the St. Lawrence River near the mouth of its 
 Power Canal at Massena, New York. 
 
 INTERIM ORDER 
 
 (September 14, 1918) 
 
 Whereas, by its application dated July 25, 1918, as subsequently 
 amended with the permission of the Commission, the St. Lawrence 
 River Power Company, a corporation organized under the laws of 
 the state of New York, having its principal office at Massena, New 
 York, applied to this Commission for its approval of the construction 
 and maintenance of a submerged weir in the St. Lawrence river 
 extending from the existing jetty of the said company below the intake 
 of its power canal to Long Sault island in said river and being wholly 
 within the territory of the United States, which construction has been 
 authorized by the United States and approved by a permit of the 
 Secretary of War bearing number 38786/64, dated September 10, 
 1917, and attached to said application, which said permit contains, 
 among others, the following provisions: 
 
 "That, if future operations by the United States require 
 an alteration in the position of the structure or work herein 
 authorized, or if, in the opinion of the Secretary of War, it shall 
 cause unreasonable obstruction to the free navigation of said 
 water, the permittee will be required, upon due notice from the 
 Secretary of War, to remove or alter the structural work or 
 obstructions caused thereby without expense to the United 
 States so as to render navigation reasonably free, easy and 
 unobstructed; and if, upon the expiration or revocation of this 
 permit, the structure, fill, excavation or other modification of 
 the watercourse hereby authorized shall not be completed, the 
 permittee, at his own expense, and to such extent and in such 
 time and manner as the Secretary of War may require, shall 
 remove all or any portion of the uncompleted structure or fill 
 and restore to its former condition the navigable capacity of the 
 watercourse. No claim shall be made against the United States 
 on account of any such removal or alteration;" and 
 Whereas, said application was first presented to the Commission 
 at its session at Atlantic City, New Jersey, on August 12, 1918, 
 598756
 
 whereupon counsel appearing for and on behalf of the United States 
 applied for an immediate hearing on said application, representing, 
 as was also alleged by the applicant, that the said St. Lawrence River 
 Power Company is a subsidiary of the Aluminum Company of 
 America; that the applicant company had for many years developed 
 hydro-electric power in its power house at Massena, N.Y., using 
 water for that purpose taken from the South channel of the St. 
 Lawrence river immediately below Dodge shoal via its power canal 
 and Grasse river near Cornwall island; that the hydro-electric power 
 thus produced is used mainly in the production of aluminium by the 
 said Aluminum Company of America; that the demand on this 
 company to supply aluminium is most urgent and insistent, and 
 practically their entire output is being taken by the United States 
 and Allied Governments for military purposes in the prosecution 
 of the present war; that, during the months of January, February, 
 March and part of April in each year, huge ice jams in the said South 
 channel cause practically a shutdown of the said plant and an annual 
 reduction in the output amounting to over six million pounds, and 
 that these serious ice difficulties can be remedied by the construction 
 of the said submerged weir, and counsel for the United States Gov- 
 ernment therefore applied to the Commission for an order for the 
 suspension of its Rules of Procedure so as to permit of the immediate 
 hearing of the said application and in support of said motion sub- 
 mitted letters from the Chairman of the War Industries Board of 
 the United States and the Acting Director of Aircraft Production 
 urgently praying for favourable consideration and approval of the 
 application herein, and 
 
 Whereas, by its order dated at Atlantic City, August 13, 1918, the 
 Commission suspended rules 9, 10, 11, 12 and 13 of its Rules of 
 Procedure and ordered that a hearing on said application be fixed for 
 the 29th day of August, 1918, at 10 a.m. of that day in the city of 
 Montreal, Que., and 
 
 Whereas, at the time and place agreed upon, the hearing having 
 taken place, the commission at the conclusion of the evidence of the 
 applicant, heard counsel on its behalf, as well as counsel on behalf of 
 the United States, the Dominion of Canada, the province of Ontario 
 and the state of New York, and also on behalf of several private and 
 corporate interests, no testimony having been presented by either 
 Government or by any interest in opposition to said application, and 
 
 Whereas, at the said hearing at Montreal, counsel for the United 
 States presented to the Commission a letter from the Secretary of War 
 of the United States to the Commission, requesting in order to meet 
 the urgent necessity for the increased production of aluminium for 
 the prosecution of the present war, that the permit he had granted 
 to the applicant receive the approval of the Commission, and 
 
 Whereas, the Dominion of Canada by its Statement in Response 
 and also at the said hearing denied the jurisdiction of the Commission 
 to entertain and grant the said application, alleging that, under Article 
 VII of the Webster- Ashburton Treaty of August 9, 1842, it is stipu- 
 lated that the channels in the river St. Lawrence on both sides of 
 Long Sault island and Barnhart island shall be equally free and open
 
 83 
 
 to ships, vessels and boats of both parties, and also that, by the Treaty 
 of January 11, 1909, between Great Britain and the United States, 
 it was agreed that the navigation of all navigable boundary waters 
 shall for ever continue free and open for the purposes of commerce 
 to the inhabitants and to the ships, vessels and boats of both countries, 
 and 
 
 Whereas, the Commission at Montreal, on the 31st August, 
 having duly considered the said application and the evidence offered 
 in support thereof, and the said exception to its jurisdiction, adjourned 
 its sitting to the 12th day of September at the city of New York, 
 when it continued the consideration thereof on the said and following 
 days, and 
 
 Whereas, the Commission is of opinion that the said submerged 
 weir would be an obstruction in a boundary water on the United 
 States side of the boundary line which would alter the level on the 
 Canadian side thereof, and therefore the Commission has, under 
 Articles III and VIII of the Treaty of 1909, full jurisdiction and 
 authority to pass upon the said application, and 
 
 Whereas, the Commission is of the opinion that, in order to arrive 
 at a final decision further evidence should be taken and further argu- 
 ment submitted, especially with regard to the effect of Article VII 
 of the Webster-Ashburton Treaty in so far as it may or may not 
 constitute a bar to the construction of the said weir, and with regard 
 to the question of whether said article has been superseded by the 
 Treaty of January 11, 1909, and 
 
 Whereas, the war necessities of the Allied Governments impera- 
 tively demand that the production of aluminium at the applicant's 
 plant at Massena be increased as much as possible during the winter 
 months, and 
 
 Whereas, it further appears that the construction of the said 
 submerged weir must be immediately commenced and be completed 
 by the 15th day of December next in order that the production of 
 aluminium for the present year may be increased; 
 
 Therefore, without at the present time finally deciding the 
 question whether the Commission should approve the construction 
 and permanent maintenance of the said weir, and without prejudice 
 in any way to its right to decide such question hereafter, and in view 
 of the pressing necessity for the immediate increase for war purposes 
 of the available supply of aluminium, and at the urgent request of the 
 United States, 
 
 // is hereby ordered, as an interim measure, that the construction 
 of the said weir and its maintenance until the expiration of the 
 term of five years from the date hereof, or until the termination of 
 the present war, is hereby approved upon the following conditions: 
 
 (1) That, at the expiration of said period of five years, or upon 
 the termination of the present war, whichever shall last occur, said 
 weir shall be removed by the applicant; reserving, however, to the 
 applicant or any other interested party the right to apply to the 
 Commission at least one year before the expiration of the said period 
 for a further continuance of the said weir, and on such application 
 the Commission may approve of such continuance on such terms and
 
 84 
 
 conditions as it may deem appropriate and equitable for the protection 
 of the rights and interests of the people on either side of the line in 
 accordance with Article VIII of the Treaty of 1909. 
 
 (2) That the said weir shall be constructed and maintained in 
 accordance with the plans mentioned and under all the terms and 
 conditions set forth in the paragraphs numbered from 1 to 11, both 
 inclusive, in the permit therefor granted by the Secretary of War, 
 dated September 10, 1917, so far as same are applicable. 
 
 (3) That for the purpose of protecting the rights, property and 
 interests on either side of the boundary from any injurious effect 
 resulting from the construction and maintenance of said weir the 
 Commission will, during the term of its approval herein, retain juris- 
 diction over the subject matter of said application, and may make 
 such further order or orders in the premises as may be necessary. 
 
 Provided, that in making the foregoing order the Commission 
 shall not be deemed to have considered nor passed upon any question 
 pertaining to the right of the applicant to divert water from the St. 
 Lawrence river. 
 
 Dated at New York, N.Y., September 14, 1918. 
 
 C. A. MAGRATH 
 O. GARDNER 
 HENRY A. POWELL 
 JAMES A. TAWNEY 
 P. B. MIGNEAULT 
 R. B. GLENN
 
 85 
 
 APPENDIX V 
 
 Order in Council, October 12, 1918, re St. Lawrence River 
 
 Power Company 
 
 P. C. 2509 Certified copy of a Report of the Committee of the 
 Privy Council, approved by His Excellency the Governor General on 
 the 12th October, 1918. 
 
 The Committee of the Privy Council have had before them a 
 Report, dated 19th September, 1918, from the Acting Secretary of 
 State for External Affairs, submitting as follows: 
 
 As the result of an application recently made to the International 
 Joint Commission by the St. Lawrence River Power Company, a 
 corporation of the State of New York, for the approval of a project 
 to construct certain works in the South Sault channel of the St. 
 Lawrence river, an International navigable boundary water, a 
 situation arose which gravely concerned Canadian interests; for in 
 the view of this Government, already expressed at length in the order 
 in council of the 2nd September, 1918, (P. C. 2144),* not only was it 
 clear that, since the proposed works would wholly prevent navigation 
 through the South Sault channel, the International Joint Commission 
 was, by reason of existing treaties between His Majesty the King and 
 the United States, without power to sanction the project, but it was 
 further apparent that the project itself was inconsistent with and 
 would seriously impede the best development of the St. Lawrence 
 river for navigation and power purposes in the interest of both 
 countries. It was also the view of this Government that the con- 
 struction of such works was in no wise necessary for the attainment 
 of the end desired by the St. Lawrence River Power Company, as 
 expressed in their application, but that other effective and wholly 
 unobjectionable means were available for that purpose. Accordingly, 
 it became the duty of the Government to appear formally before the 
 International Joint Commission and to enter its strong objection to 
 any consideration of the application by that tribunal. At the same 
 time it appeared that the Government of the United States has come 
 forward in support of the application and was urging its immediate 
 approval as an urgent war measure. 
 
 In those circumstances this Government, with every desire to 
 promote the most effective co-operation in the prosecution of the 
 war, proposed, as will appear from the said order in council of the 
 2nd September, 1918, that the matter should be withdrawn from the 
 International Joint Commission and discussed directly between the 
 two Governments with a view to securing the immediate accomplish- 
 ment of the desire and purpose of the United States Government and, 
 at the same time, preserving the position of this country in respect of 
 its treaty rights and its interest in the sound development of the 
 St. Lawrence river for navigation and power purposes. The proposal 
 was indeed calculated to secure this purpose of the United States 
 Government more expeditiously than was possible through the 
 medium of the Commission, even if the Commission had had power to 
 entertain the case. 
 
 *See Appendix II, p. 65.
 
 86 
 
 In pursuance of this proposal two members of the Government 
 proceeded to Washington and presented the position in greater detail 
 to the Secretary of State of the United States. It may be added here 
 that the proposal was not at that time accepted, nor has it since been 
 accepted; in fact, no reply thereto has yet been received from the 
 United States Government. 
 
 Subsequently, on the 14th September, 1918, the International 
 Joint Commission reached a decision on the application and delivered 
 an order, copy of which is appended hereto, [Appendix IV], approving 
 the construction of the proposed works on certain conditions therein 
 set forth. At the same time, the order reserves for further considera- 
 tion the question whether under the terms of existing treaties, the 
 Commission has power to approve the proposed structure. It should 
 be added that the Canadian Government, through its counsel, had 
 already, before the issuance of the order, acquainted the Commission 
 with the terms of the order in council of the 2nd September, 1918, 
 setting forth its view that the Commission was without power to 
 make such an order. 
 
 It is worthy of note that the Commission, in issuing the order, 
 expressly declines to decide whether it actually has power to do so. 
 In exercising authority it leaves for future determination the con- 
 trolling question as to whether it possesses any such authority. How- 
 ever, it cannot be doubted that the issuance of the order is in itself an 
 assumption of such authority. 
 
 Thus confronted with an assumption of power on the part of the 
 International Joint Commission, which, in the opinion of the law 
 officers of the Crown, was entirely unwarranted, it is necessary to 
 determine at once the course of the Government. A conclusion as 
 to the course to be pursued under such conditions is not without diffi- 
 culty. It is pertinent, however, to recall that, in a former case, 
 presenting a similar situation, the Government of the United States 
 refused to recognize the jurisdiction of the International Joint Com- 
 mission. In the matter of the division of the waters of the St. Mary 
 and Milk rivers, then pending before the Commission, it appears, 
 from a despatch from His Majesty's Ambassador at Washington, 
 dated November 13th, 1917, that the United States Secretary of 
 State, by letter dated November 8th, 1917, informed the Ambassador 
 that, since the Commission had under consideration the question of 
 its authority to interpret or construe Article VI of the Treaty of 
 January llth, 1909, and since, in the view of his Government, the 
 Commission had no such authority in the then state of the case, he 
 had deemed it proper to inform the Commission that whatever 
 conclusion was reached by the Commission could not be regarded as 
 binding upon his Government in so far as it undertook to construe 
 the Article in qirestion. 
 
 In view o'f the foregoing, the Minister recommends that the 
 Government of the United States be informed that this Government 
 feels bound to repeat its view that, for the reasons already indicated, 
 the International Joint Commission was without authority to approve 
 the application of the St. Lawrence River Power Company, and that
 
 87 
 
 the order of the Commission assuming to grant such approval cannot 
 be regarded by the Government of Canada as binding upon this 
 Dominion. 
 
 The Government of the United States will readily understand 
 that, in taking this course, the Canadian Government is actuated only 
 by its concern for those treaties and conventions that have so happily 
 promoted the friendly relations between the two countries, and by 
 the belief that it is through a jealous regard for the integrity of such 
 understandings that these fortunate relations may best be maintained. 
 
 It is with this purpose also that the Canadian Government 
 deems it appropriate to refer here to the proposal made in the order 
 in council of the 2nd September, 1918, that the two Governments 
 should take immediate steps jointly to prepare and carry out a scheme 
 looking to the most economical and comprehensive development of 
 the waters of the St. Lawrence river in the interests of the people of 
 both countries. Even though the utilization of only a portion of the 
 whole capacity of the river can be immediately contemplated, yet the 
 endeavour should be to design at the outset a complete scheme into 
 which successive developments might be fitted from time to time as 
 and when the occasion might demand. Without some such scheme 
 there is always present the great danger that the ultimate possibilities 
 of St. Lawrence navigation may be neglected or even irreparably 
 injured; for it must be borne in mind, not only that navigation is the 
 paramount national and international use of this great highway of 
 commerce, but that the possibilities of the stream in this respect have 
 been as yet by no means fully developed. On the other hand, it is 
 certain that the subordinate and incidental but important use of these 
 international boundary waters for power purposes can never be 
 rendered as efficient and productive through a policy of simply 
 permitting a haphazard series of unrelated private enterprises as 
 through a carefully considered and comprehensive scheme of develop- 
 ment carried out under public auspices by the two countries; and 
 obviously it is only by agreement and concerted action between the 
 two countries that such a development can be undertaken. 
 
 But, as already intimated, this is not all; there is, in addition to 
 the economic advantages, the much more important consideration 
 affecting the status of the treaties and conventions between the two 
 countries. For the adoption of the proposed joint project as an inter- 
 national policy would, it is conceived, be calculated to obviate many 
 occasions for public dissatisfaction and misunderstandings that on the 
 one side or the other might otherwise arise from time to time in respect 
 of private exploitations of the uses of these waters. Unquestionably, 
 these uses are becoming more and more regarded as public uses, and 
 it follows that the responsibility for their development should be 
 undertaken, and the benefits of such development enjoyed, by the 
 public. Indeed, for this reason and in view of the other considerations 
 here adduced the Canadian Government is strongly convinced that 
 nothing should be allowed to prejudice the chance of such a compre- 
 hensive power development of the St. Lawrence waters, and, so far as 
 its consent may be necessary, it will, therefore, be unable to sanction 
 further private enterprise of this nature.
 
 88 
 
 The Committee concur in the foregoing report and the recom- 
 mendations therein made, and recommend that Your Excellency may 
 be pleased to transmit a copy hereof immediately to His Majesty's 
 Ambassador at Washington for communication to the Government 
 of the United States, and also that a copy be transmitted to the 
 International Joint Commission. 
 
 All which is respectfully submitted for Your Excellency's 
 approval. 
 
 RODOLPHE BOUDREAU 
 
 Clerk of the Privy Council