Canada Turning the Corner

PRESIDENT EAYRS introduced the speaker who said

Canada is passing through an important transition period in her economic development. This fact perhaps accounts for the present hesitation, the feeling of bewilderment, in framing some of her national policies. For half a century or more her watchword has been, "Go West". Guided by this, a ribbon of people, with a break here and there, has stretched across the country along the southern boundary; they have consolidated their position; they have prospered exceedingly. And now, after a pause and hesitation as if they were taking stock before entering into another great enterprise, with the urge of gathering financial strength, with the restlessness of pent-up economic energy, Canadians are gradually reorienting themselves and are becoming conscious that their watchword in future must be, "Go North". (Applause.) Just as the earlier flow of people required time to get fully under way, to gather momentum before it reached flood tide, so it is natural to expect the pause, the hesitation, the apparent bewilderment, which have succeeded the westward sweep, while the new orientation is occurring, while momentum is gathering a northward flood.

The movement northward has marked advantages over the movement westward. It presents several points of attack in place of one. Each of these attacks can be made with full strength and energy, because it will not need to advance so far from its base. The general advance northward, in order to take effective possession of vast territory and resources, need proceed only a few hundred miles in place of a few thousand. This new advance is in fact the great conquest for which the preliminary line westward was thrown out and entrenched.

In this northward conquest, Ontario and Quebec have taken the lead and are greatly assisted in their first northward step by the transcontinental railways. Manitoba and Saskatchewan have recently become enthusiastic. The former will be greatly assisted in the movement, and the latter to some extent, by the Hudson Bay Railway. Alberta and British Columbia are already rapidly advancing northward; and both will be greatly benefitted by promised transportation for the Peace River District. With that district developed, the Pacific Great Eastern Railway may in time acquire a new significance.

Further, the westward movement was chiefly national-largely an enterprise backed and financed by the Dominion Government. The northern is chiefly provincial. Each of the six larger provinces has quite recently become much impressed with the potentialities of its hinterland and is beginning to push development northward, with vigor. For this function of government the provinces are much better fitted than the Dominion. Moreover, six governments, working on problems in which they have intense local interest, will be able to put much more energy into their solution than the more distant Dominion Government, with its many political distractions. For this reason, we may expect a very rapid advance in our northern development, now that the movement is well begun.

Herein, I believe, lies the real solution of our much-discussed problem of increase of population. It is only as we develop the provinces that more people can find employment, whether in our basic industries, in our secondary industries, or in the many occupations incidental to these. It is for the provinces to develop their resources and create a demand for people; and it is for the Dominion to co-operate in supplying them. Much of the current discussion of this question, by placing the emphasis on increase of population instead of economic development, puts the cart before the horse. (Hear, hear.) Conditions have greatly changed since the almost spontaneous early settlement of the southern parts of the three so-called prairie provinces. Each of these provinces will in future know best how many, and what kind of people it can take care of, and how rapidly it can receive them, in working out its own development. This method of procedure will reduce to a minimum the talk and differences of opinion, which at present seem to be generating more heat than light. (Applause.) But since the problem is national as well as provincial, let the Dominion Government lend every assistance in its power, financially and otherwise, to the provinces, in their efforts to increase their population as a result of the industrial development.

As migration in the world of animals is chiefly dependent on food supply, so flow of population results from and follows economic development. If the flow of our people has been too much southward, the direction of flow can be reversed only by economic development northward. (Applause.) It is useless to worry, to waste words and energy in fault-finding, or to try to dam the stream. We must open new industrial channels northward. The flow of people northward will result naturally. If we wish a given effect, we must set in motion a proper and adequate cause.

The present enthusiasm for northern development is economically and patriotically soundly based. It is orienting us in the right direction-away from our great, prosperous and friendly neighbour, and toward our own national opportunities. As it proceeds, it will make us less imitative, more independent, more vigorous, more self-reliant. It will cause us to really take possession of our unique heritage, to develop our country for what it is, to add our own peculiar contribution to the world's material, mental and moral resources. It will make us a nation in the full meaning of the word. (Applause.)

As long as we remain a ribbon of population, settled close to our southern frontier, developing chiefly areas similar in climate and natural resources to contiguous areas belonging to the great neighbour south of us, we must expect increasing assimilation to the neighbouring people. Like causes and conditions produce like results. But if we resolutely face northward, as we are now beginning to do, our climate, our physiographical conditions, and our resources will grow more and more differentiated as we advance. Our outlook will change. Our economic problems will become more peculiarly our own. These physical and economic conditions will react on our developing nation, in part by natural selection, and we shall gradually develop national characteristics, national individuality, true nationhood. Civilization will be enriched by the material, mental and spiritual contributions of a highly individualized, a really worth while, people. For this ideal, neither great population nor vast wealth is necessary. Some of the greatest contributions to civilized progress in history have been made by relatively small peoples of quite limited wealth. Yet, our great territory is so splendidly endowed by Nature that we may well hope to prosper in numbers and wealth, while striving after the higher ideal. (Applause.)

Let us briefly recall a few of the contrasts between conditions northward and southward from the international boundary

(1) Climate: The differences in temperature and moisture, as we proceed northward or southward, whether in the east, middle, or west, are very striking, but are too well known to need repetition. Making every allowance for the rigorous winter temperature of some of our northland, we may well remember a few of its advantages: The summer climate is so delightful that this northern territory is fast becoming the recreation ground of the continent; the autumn brings the hunter; and even winter brings its quota of lovers of sport. We have no desert spot due to lack of moisture. We are beyond the sweep of the violent tornadoes of some of the central states to the south. We do not suffer from the hurricanes which occasionally devastate the south eastern states leaving a path of death and ruin behind. And our climate will greatly simplify our racial problem.

2) Physiography: The most striking physical feature of Canada is the pre-Cambrian Shield, now familiar to every well-informed citizen. This geologically ancient but recently glaciated, area, dotted with countless lakes and muskegs large and small, and threaded with irregular watercourses with abundant potential and developed water-powers, occupies well over half of the entire country, or about ninety percent of the entire area north of the St. Lawrence and Great Lakes, and east of Lakes Winnipeg, Great Slave and Great Bear. West of the Shield, and wedged between it and the Rocky Mountain Plateau, is most of Canada's part of the central continental, plain, which, though much narrower at the international boundary than in the United States, and rapidly tapering to the northward, is of vast economic importance. West of the central plain is the Rocky Mountain Plateau. The smaller area south-eastward from the St. Lawrence, including the Maritime Provinces, is chiefly the extension into Canada of the Allegheny Plateau, which though rugged in Gaspe Peninsula, is generally of low elevation in the Maritimes. These four great natural divisions of Canada comprise our entire mainland area except: (1) a small though highly developed northerly extension of the central continental plain into Southern Ontario and Quebec, which extension was long practically synonymous with Canada; and (2) a low-lying flat area in Northern Ontario and Manitoba of about 100,000 square miles extent, gently sloping toward, and forming a continuation of the floor of, Hudson and James Bays.

A proper realization of the extent and characteristics of these physiographical features, which every Canadian schoolboy should have vividly implanted in his mind, -(Hear, hear.)-will make it clear that over most of Canada, as we proceed northward from the international boundary, the difference is even more marked than the contrast in climate. The pre-Cambrian area of Quebec, Ontario and Manitoba, with its recently glaciated surface, affects the physiographic and geologic characteristics of these provinces so profoundly that their southern agricultural areas, which until recently received almost exclusive attention, can be regarded as little more than a base of supplies to be used in developing the northern parts of these provinces. Even Saskatchewan is roughly forty percent. pre-Cambrian; nor is there any good reason why both Saskatchewan and Manitoba should stop at the 60th parallel in the development of their northern areas. The contrast in physiography, as we go northward, is less marked in Alberta and British Columbia.

(3) Resources: A vivid realization of the characteristics of Canada as a whole, in respect of climate, physiography and geology, and of the effects of these on natural resources, will leave no doubt that the conception that prevailed until quite recently, viz., that "Canada is preeminently an agricultural country", needed serious modification. True, we have just harvested nearly half a billion bushels of wheat. True, we can perhaps finally bring under successful cultivation three times the present cultivated area, or say a total equal to about one-third of the cultivated area of the United States. True, also, our area suitable for cultivation should perhaps comfortably accommodate a rural population of about fifteen millions. But even these figures, extremely important as they are, take account of rather less than fifteen percent. of Canada's whole area. Or if for the present, chiefly because of climate, we decide to leave out of consideration the parts of our country not yet organized into provinces, there will still remain in the organized provinces a nonagricultural area of more than three times the total area suitable for cultivation. It is no longer necessary, as it was a few years ago, to try to convince people of the mineral wealth of this great northern area. The forests over much of it, the minerals, and the waterpowers enhancing the value of both, offset its agricultural limitations. Our industrial development will benefit by the variety and balance due to these varied resources. Nothing could contribute more to the welfare and success of the farmer than to have a home market created for him by the development of other natural resources. And nothing is of greater assistance to the development of mineral and timber resources, and to the creation of secondary industries, with the flourishing towns to which all of these give rise, than an abundant and varied supply of agricultural produce near at hand. All these industries will necessitate efficient means of communication and transportation, in other words, good roads, railway extensions, telephone and mail service, as well as banks, schools, and the many other conveniences and amenities of civilized life. In the provision and operation of these will be found ample occupation for both manual and mental workers. (Applause.)

Such in brief outline is a glimpse of our northern conditions, and of a sound and natural growth of population under these conditions. How are our government organizations assisting this development? Scientific exploration and surveys; supply of information, general oversight, guidance and encouragement; helpful legislation and sympathetic administration; prompt building and efficient maintenance of good roads, and in some instances of railway branches, as fast as justified-such are the kinds of assistance our provincial governments are becoming well organized and equipped to supply. Regulation of, and assistance in, transportation and communication; carefully studied tariff regulation; cooperation with provincial governments in financing roads and other development of new territory, and in supplying the right kind of people; such interprovincial matters as solving the problem of supplying our central area with coal from the east and west; assistance in exploration and in scientific investigations connected with industry-these are a few of the most effective kinds of service the Dominion Government is rendering and can render toward our northern development and increasing our population as a result. Our great railway organizations, the British Government, and other institutions and bodies interested in the problem, can co-operate most effectively with the Dominion Government, if all see clearly the great importance of working closely with the provincial governments, in solving the difficult problems arising from development of our northern areas, and increasing our population. But the solution of the problem of growth of population, which most Canadians now recognize as supremely important, must begin with economic development, if it is to be sound and lasting and is not to end in heavy losses of people or in winter bread-lines in our large cities.

Before the three so-called prairie provinces were formed, and enlarged to their present size, and so long as our primary development meant solely or chiefly the building of railways and settling of farming lands near them, the future complexity of the problem as we have it today, was not generally foreseen. New people were brought in, took up land, and looked after themselves. Economic development and increase of population seemed to be practically synoymous. But a chain of large provinces has been formed, extending from coast to coast. Their natural resources are, or soon will be, administered by the several provincial governments. Each province is developing an efficient government organization, enthusiastically interested in the development of its own resources. As development proceeds northward, the problem is no longer solely, or perhaps even chiefly, the settlement of new lands, though great areas of unsettled lands still remain. Our northern areas demand a more varied and balanced development. The problem of development, from which will naturally result increase of population, has become much more complex, and will in future become even more so. Moreover, it has become a problem to be solved jointly by the provincial governments and the Dominion Government working hand in hand; the provincial governments working out the details, and the Dominion Government standing aside on these matters but assisting and co-operating in more general ways, some of which have been indicated.

The first essential to success in working toward a solution of any great and highly complex problem is to visualize, as nearly as possible, its scope and outlines. It will simplify this problem, if for the present we confine our attention, as we have been doing, to the part of Canada already organized into provinces, that is, the part south of the 60th parallel of latitude, comprising a total area of nearly three-fourths of the area of the United States. Nearly one-third of this entire area is still densely forested, all of the provinces except Prince Edward Island sharing in this resource, even the three prairie provinces having timbered areas of importance. This part of Canada also includes practically all the area suitable in surface, soil and climate for cultivation. The development of the area as a whole has proceeded far enough to convince Canadians that it contains untold wealth in minerals, ranging from coal, oil, salt and valuable clays, to silver, gold and platinum. And the young topography of the area, due chiefly to recent glaciation, Nature not yet having had time to reduce stream-courses to easy gradients, has ensured abundant potential waterpower nearly everywhere. Where waterpower is least abundant, coal in vast quantities is near at hand. Moreover, the southern part of each of the six largest provinces is already well settled by a vigorous, wealthy and prosperous population, most of whom have hitherto been so absorbed in their own pioneering problems that they are just beginning to turn their attention to the great series of problems and opportunities in the northward development of their several provinces. Further, these southern communities are already connected east and west by two highly efficient transportation systems. Such, in broadest outline, are the general conditions of the problem.

But we have obtained in each province little more than a strong foothold. The problem now is for each of the provinces to expand this southern development to push are chiefly considering has about four and a half times, and the largest about twelve times, the area of England, a glimpse of the great magnitude of the problem of development for each of the six provinces will be obtained. But if the small population of Canada nearly half a century ago had the courage, the initiative, and the energy-even with the limited knowledge of the country and the limited scientific development then at their disposal-to push railways boldly more than two thousand miles westward, establish settlements, build towns and cities, and lay the economic foundation on which a group of great western provinces has been established, surely we can now successfully attack the problem of pushing this development northward a few hundred miles in each province! (Applause.)

But we seem to be bewildered by the problem of lesser distances. This may be because we have not clearly realized that the government machinery which so successfully accomplished the greater but simpler task is not well adapted to the lesser but more complex undertaking. The problem of western expansion could be undertaken only by the Dominion Government. Do we realize, as clearly as we should, that the problem of northern development, now that we have a chain of provinces stretching from Gaspe to Vancouver, has become a provincial matter? And is it clearly realized that since increase of population, if it is to be really a success, must result from, and be incidental to, this economic development, the initiative in this matter has passed from the Dominion to the provincial governments?

The present semi-paralysis will probably continue until the three prairie provinces have obtained complete control of their natural resources, and until the change-over of the initiative for increase of population from the Dominion to the provincial governments is more generally and snore clearly realized. But how much more successfully and rapidly this important problem can be solved by many provincial governments, well adapted to, closely in touch with, and deeply interested in, their local conditions, than by a single government, which must necessarily be responsible for all national questions, including the national aspects of this problem! Yet, for the greatest success, there should be the closest and most sympathetic cooperation between the Dominion Government and the Provincial Governments. The Dominion Government can and should consult with, guide, and assist, the provinces. But in this most important matter, though national in its broadest aspects, the greatest, most rapid and most permanent success will be achieved by working with and through the provincial governments.

In working toward the solution of a problem, so vastly important, so highly and increasingly complex and so far-reaching in its many details, as this problem of increasing our population, of developing Canada into a greater nation, really is-there is no room for petty jealousy; for carping faultfinding and destructive criticism; for narrow views, shallow-mindedness and haste; for obstructive tactics, merely for personal or group advantage; or for vague thinking, which leads to muddled organization But there is room for, and great need of, wholehearted, sincere and patriotic co-operation; of constructive suggestion and helpful, sympathetic criticism; of broad, deep and long-continued consideration of its innumerable details; of making haste carefully and with deliberation; of far-sighted, clear thinking, which leads to cleancut, effective organization.

Fortunately, the provincial governments are becoming well organized, and the people in the provinces are already becoming enthusiastic, for this very thing, this economic development northward. In at least two of the provinces a long start has already been made and the marked success already attained has acted as a powerful stimulus to the others. In these two provinces, highly efficient government organizations for northern development already exist, and merely need expansion as the work of development progresses. In the remaining provinces the organization for this purpose is already begun and their task is made much easier by a study of the methods followed, and results obtained, in the other two, in some instances even by taking over experienced men. This is a kind of inter-provincial cordiality and co-operation to be highly commended. It is founded on true patriotism. For, our recognition of provincial government organizations as the most effective means for securing rapid economic development of Canada in future, and our local enthusiasm, must never be allowed to degenerate into provincial narrowness.

Development of the country by concentration of effort through the provincial organizations has become advisable, because otherwise the problem is so large that our attacks become too general and diffuse to be effective; also because, in an attack of this kind, local enthusiasm and healthy rivalry count for much. On the western front in the Great War, the allies organized several armies, because in this way they could concentrate their blows more effectively. Without pushing the analogy too far, it may easily be seen that our northern advance will be most rapid and successful, if our Dominion Government recognizes clearly that, while reserving to itself general guidance, direction and supervision, all available energy and assistance, financial or other, can be applied most effectively through the provincial units. If the economic development of the provinces is rapid and sound, the Dominion Government will have no further reason to worry over our slow increase of population, or loss of people southward. Increase of strength or preservation of health in the individual results naturally from following certain fundamental conditions. Health and strength do not arise from either wish or worry. Just so, our national growth will result quite naturally, if we cease to worry about increasing our strength in numbers, and concentrate our attention, even more effectively than we are doing at present, on rapid and thorough economic development of our resources. (Applause.) As already indicated, I believe the provinces are now building up, or beginning to build up, effective organizations for this purpose. Probably Ontario and British Columbia have made the greatest progress. The close cooperation between the forestry, land and mining departments on the one hand, and the operator, settler and prospector on the other, in these two provinces, in the supply of information and maps, giving of expert advice and assistance, building of roads when shown to be warranted, and in many other ways, may well be closely studied by the other provinces. The western provinces have been seriously handicapped by not having the same complete control of their natural resources as the other provinces. I know little, and care even less, about the political issues involved. But it must be true that the sooner this handicap, with its dual authority and responsibility, is removed-a condition which lessens energy and driving force in any organization-the more effectively will these governments settle down to their great task of development of their northern areas. These provinces have Canada's greatest agricultural, coal and oil resources, which occupy such a key position in modern industry that the future importance of this group of provinces can hardly be over-estimated.

In referring, however briefly, to our provincial organization for economic development, we should not omit to mention the provincial universities and their affiliated colleges. Each province has one or more of these, and each of the universities has an efficient applied science faculty, which furnishes an opportunity for training promising young men either to become industrial leaders or to fill the increasing number of positions in the government organization. The importance of this thorough preparation of young men to fill these positions is not as generally appreciated as it should be. Moreover, many members of the staffs of these universities, frequently assisted by their students, enter the government service during the long vacation, carrying on field work of inestimable value, and giving their sessional teaching an effectiveness and weight not otherwise obtainable. Added to these services, important researches, often of great value, are carried out in the university laboratories.

In addition to these investigations, the Ontario Government has recently taken the initial steps toward founding a research institution which, backed as it is by the larger industries of the province, must in time greatly assist the economic development of the province. No doubt the other provinces will closely study the organization and success of this innovation and will, as they feel warranted in doing so, work out similar organizations adapted to their provincial needs. The Dominion institution for research, now being founded, together with extensive work of research already carried on under various departments of the government at Ottawa, may for some time meet this need for those provinces with smaller population and less developed wealth.

This brief outline will suffice to make it clear that, in general, the provinces are proceeding along the right lines. The organizations they are creating are becoming, and will become more and more, highly effective. To secure driving power and efficiency, there is no sounder principal to apply, than local provincial authority and responsibility. The more clearly this principle is realized and applied, the more rapidly and successfully will the economic development of Canada be extended northward. Such development is the fundamental condition of growth of population. The two are inseparable. If

the Dominion Government guides, assists and supports the provinces to the utmost in this development, it will have taken the most effective possible steps toward the solution of the problem of increasing our population, which at present seems to be a source of worry, cross-purposes and bewilderment. The provinces do not wish people thrust into them. But, as their development proceeds, they will become urgent in their demand for more people.

When we think of this problem primarily from the standpoint of bringing in and assimilating people, we are reversing the natural sequence; we are mentally placing the effect before the cause; in the language of the street, we are making the cart pull the horse. This method, if followed, causes confusion and ends in loss of population. If, however, we reverse our method, and think primarily of economic development of our resources, of extension of our existing industries and creation of new industries, we are placing the cause of inflow of people first, where it should be. The inflow will follow naturally.

If I have said nothing about the need of capital, it is because this need is everywhere implied. Industry creates new capital which is available for further extension of industry. Among Canadians the feelings of confidence in their resources has in recent years become so great, and our industries have got into such a sound position, that capital to any reasonable amount can at present be obtained for any enterprise that has a reasonable promise of success. (Hear, hear.)

Simple as these principles are, they are of such fundamental importance that, even at the risk of wearying you, I am tempted to pause and summarize: Sound growth of population must rest on and, result from expansion of old, and development of new, industries. Many, if not most, of our resources to the northward of the older settled areas are as yet wholly undeveloped, and even to a large extent unexplored. Hence, future progress will consist not only in fuller development of areas already occupied near the international boundary but also, and chiefly, in utilizing the resources of our more northerly areas.

Since the entire area of Canada south of the 60th parallel is now organized into provinces, this development will proceed most rapidly and efficiently under the provincial governments, backed and assisted as far as possible by the Dominion Government. The initiative in growth of population, therefore, has now largely passed from the Federal Government, and rests mainly with the provinces. Hence, though the government at Ottawa is, and must remain, responsible for the regulation and control of in-coming people, it is by the closest co-operation with the provincial governments in the development of provincial resources that increase of a prosperous and contented population will be most effectively brought about.

Careful study and co-ordination of organizations and efforts, as between the Federal and Provincial Governments, is very necessary in order to avoid over-lapping, dual responsibility, misunderstanding and loss of driving force, and to secure the highest possible results from the co-ordinated efforts. Most valuable assistance is being, and can be, rendered by our great railway organizations, by the British Government, as well as by various other bodies deeply interested in the problem of expansion of industry and population in Canada; but this assistance will become most effective, if there is, on the part of all concerned, a clear recognition of the importance of cooperation with the provincial governments.

In any great enterprise-and what undertaking could be greater than the up-building of a nation worthy to occupy a territory nearly as large as Europe?-nothing hinders so much as confused organization, and nothing adds effectiveness, drive and cordial co-operation like clear-cut understanding and recognition of the responsibilities of each unit or individual. Are we not mistaken in placing almost the sole responsibility for increase of population, as we have been doing, on the Dominion Government? The mistake, probably unintentional, may offer a fine field for the endless talk and recriminations of politicians. But can we afford to play politics with so important a matter as our national growth and prosperity?

This brief study of the urgent problem of increasing our population is offered in the hope that it may be of some assistance, however small, in clearing away the confusion and hesitation, the existence of which seems to be indicated by current discussions in the press. If, as I have indicated, we are already proceeding along broadly sound lines, clear recognition of this fact will be most helpful. Nothing is more calculated to increase the driving power, which alone can ensure rapid progress in carrying out a great and difficult enterprise, than complete confidence in the organization undertaking it, and the methods pursued. But I am inclined to the view that much good would result from a clear recognition, on the part of all thinking citizens, including all our representatives at Ottawa, of the supremely important place the provinces must come more and more to fill, now that we have definitely turned the corner, and are facing northward rather than westward. A wider and clearer recognition of this new stage at which our economic development and growth of population have arrived, will, I am convinced, add a new impulse to, and put more drive into, our advance northward, by causing a closer co-ordination of the various organizations engaged in the work, and a more definite fixing of responsibilities for its success.

Muddled thinking leads to muddled organization, which results always in over-lapping, confusion, conflict, recrimination, loss of time and energy, and general inefficiency. We are at a crucial transition period in the most gigantic enterprise that can be undertaken-the development of half a continent, the growth of a great nation. A close and constant study leading to a clear understanding of the interrelations, functions, and responsibilities of the various organizations growing up to push on with this vast undertaking is both the privilege and the duty of every intelligent Canadian citizen. (Loud and continued applause.)

PROF. HAULTAIN, head of the Department of Engineering University of Toronto, voiced the thanks of the Club to Dr. Corless.