Introduction

    The Education System of the province of Newfoundland and Labrador has undergone a period of turmoil during the past decade. Attempts to reform the system have led to periods of frustration, confusion and, in many cases, conflict between parents, teachers, leaders in education and the churches. The province has been subjected to a Royal Commission in Education and two referenda in order to develop a more effective and efficient educational system. The following represents a brief review of the events which have led us to the current state of education in this province. The focus in this paper is primarily on the involvement of the churches in education and some personal views on the potential which exists for churches and parents to have input into the Religious Education Component of the school programming. It is worthy of note that the views expressed by the author may reflect an element of bias resulting from his former role representing the Churches In Integration as Executive Officer of The Denominational Education Commission.

Historical Background

    In the province of Newfoundland and Labrador, schools were started by churches or by various religious societies inspired by churches. As a result, a system of denominational education evolved with several denominations having rights in legislation when Newfoundland became a Province of Canada in 1949. These rights were included in the Canadian Constitution under Term 17 of the Terms of Union. Following Confederation, tremendous growth was experienced in many aspects of education in the Province. Largely in response to this growth, in 1964 the government of the day established a Royal Commission to make a careful study of all aspects of education in Newfoundland and to make recommendations regarding change. As a result of the discussions which were prompted to a substantial degree by the work of this Commission, two major developments occurred which were very significant for the denominational system of education. Through a process of discussion and negotiation, the major churches involved in education agreed to withdraw from direct involvement in the Department of Education and carry out their mandate through agencies established outside the Department structure. As a result, in 1969 Denominational Education Councils were established to represent the educational interests of classes of people which had rights to operate schools in the province. Therefore, the rights exercised by the various denominations in matters of education were reposed to these councils which were given specific mandates in provincial legislation.

A Royal Commission: Our Children Our Future

    In August, 1990, the Government of Newfoundland and Labrador announced the appointment of a Royal Commission to study the organization and delivery of education in the Province. Over the next year and a half, the Commission examined all aspects of education and were told by the public that significant changes needed to be made in the whole educational enterprise. Although most people felt that something drastic was needed in order to improve the quality of education for the children of this province, there was no clear consensus as to what ought to be done. Each special interest group was lobbying for their own version of reform and these, not surprisingly, were often in tension and conflict. With respect to the denominational nature of education, the report states that " the Commission was told repeatedly that the denominational system in its present form creates divisiveness and is an impediment to social cohesion." Parents wanted to maintain traditional values in schooling to ensure the stability of the family and the community. A public opinion poll conducted by the Commission clearly showed that the public viewed offering a religious education component in the curriculum as contributing to a better overall education. The public also expressed the view that teachers have a responsibility to show a commitment to religious values and standards.

    After significant input and consideration, the Commission in its report of March, 1992, proposed a modified denominational system. Under the proposed model, the churches were to have educational input at the highest level of government and a continuing role in the spiritual development of students of their denominational persuasion through the development of religious education programs and pastoral care initiatives. It envisioned a system which involved the formal integration of all faiths and the development of policies and practices which would involve all citizens in schooling and school governance.

The Referendum of 1995

    Following the release in 1992 of the Royal Commission report Our Children Our Future, considerable discussion took place between Churches and Government related to possible ways to make significant changes in the structure of the educational system and yet maintain a significant influence of the Churches in the governance and operation of the school system. When it became apparent that differences held by the two parties were not resolvable, government went to the public of the province to seek approval for a change to the Terms of Union which would allow for the implementation of a new model for education. A referendum was thus called for September 5, 1995. By a majority of 55%, the people of this province voted to accept a new model for education, one which would retain the denominational character of the previous system, but which would provide the provincial government with additional powers to organize and administer education in the province. In October, 1995, the provincial legislature passed a resolution to amend Term 17, adopting the model that had been presented during the referendum. In December, 1996, the Term was passed by Parliament in accordance with section 43 of the Constitution Act, 1982. The amendment was proclaimed April 21, 1997.

    The Legislation which followed the change in Term 17 mandated that the denominations representing the classes of persons having rights under Term 17(a) of the Terms of Union of Newfoundland with Canada jointly establish a Denominational Education Commission. An agreement to establish this Commission was signed on January 24, 1997. The main roles of the Commission were to support programs in religious education and to advise the Minister and the denominational committees of school boards respecting issues of concern to the Commission.

    The government, through a revision of Term 17 and the introduction of new legislation assented to December 19, 1996, provided for significant input by the churches into the governance, administration and programming of the school system. In the programming area, the new Term gave persons having rights the right to provide for Religious Education as well as religious activities and observances for the children of these classes in these schools. However, what was created with this new constitutional term and legislation was a system which was more confusing and complex than existed prior to the 1996 legislation. The new legislation made provision for uni-denominational schools as well as interdenominational schools. School trustees were allocated on the basis of proportional population by denomination. Committees of school boards had significant authority in uni-denominational schools with lesser roles in interdenominational schools. Often these committees consisted of individuals who were not school board trustees. Inequalities began to occur as a result of teacher reassignment and redundancies. Concerns were being expressed as to which students would be able to attend schools classified as uni-denominational and those classified as interdenominational schools.

    A particular concern for the Church Leaders in Integration was the greater division which was created among their people as result of the new structure being put in place. Within our province, some neighbors and family members with opposing viewpoints on these educational issues were having significant problems resolving their difficulties. Indeed, friction was created among church leaders and further divisions occurred.

    On May 23 and June 18 -20, 1997, Mr. Justice Leo Barry heard a petition from the applicants, adherents and representatives of the Roman Catholic and Pentecostal denominations, seeking an injunction to prevent alleged violations by the school boards and government of constitutionally guaranteed rights to uni-denominational schools. On July 8, 1997, Justice Barry made his decision known and subsequently issued an order restraining the school boards from closing schools operated as Roman Catholic and Pentecostal schools in the school year 1996-97, without the consent of the Catholic Education Committee or the Pentecostal EducationCommittee of The Denominational Education Commission. Mr. Justice Barry stated, however, that there must be an expressed parental preference for a uni-denominational school under the minimum standards or requirements for adequate schooling by the Department of Education and the school boards for 1996-97, after allowing, in a non-discriminatory fashion, for changes necessary to recognize the declining student population and reduction in teacher allocation. The order also required that the effects of the school designation process carried out in the spring be suspended until the government had an opportunity to have school board members elected on September 30, 1997. The newly elected boards were to have had a reasonable opportunity to carry out a new registration process to determine parental preference for any school, where so requested by a Denominational Committee of the Denominational Commission. In the new designation process, the non-returns were to be ignored.

    The decision of Justice Barry referred specifically to the Roman catholic and Pentecostal Denominations. On Friday, July 11,1997, the Church Leaders in Integration met with the Minister of Education and members of his staff and requested the same benefits afforded the Roman Catholic and Pentecostal denominations be afforded to The Churchesin Integration. In a letter dated July14, 1997, the Minister of Education stated that "we would be willing to afford your committee similar treatment in similar circumstances and facilitate discussions with the appropriate school board, as necessary." The proposed new structure for education and the resulting frustrations appear to have precipitated the call for a new referendum in September, 1997.

The Referendum of 1997

    A new proposal from government to the people of Newfoundland and Labrador involved the complete removal of the churches from the governing of the schools. It meant that the existing Term 17, which sets out denominational rights in the constitution, was to be completely replaced. The new term made the legislature responsible for the administration of schools and gave students the opportunity for religious education and observances. The question posed to the people of the province on September 2, 1997 was as follows:

" Do you support a single school system where all children, regardless of their religious affiliation, attend the same schools where opportunities for religious education and observances are provided?"

17.(1) In lieu of section ninety-three of the Constitution Act, 1867, this term shall apply in respect of the Province of Newfoundland.

    (2) In and for the Province of Newfoundland, the Legislature shall have exclusive authority to make laws in relation to education, but shall provide for courses in religion that are not specific to a religious denomination.

    (3) Religious observances shall be permitted in a school where requested by parents.

Post 1997 Referendum Initiatives

    Since the passage of the revised Term 17 and the subsequent legislation, new school boards have been elected and considerable reorganization has taken place at the school level. In the programming area,development of a common religious education program for all students has been taking place.

    In a document entitled Religious Education, A Curriculum Framework (Interim Edition), the Department of Education has clearly described a rationale for a religious education program. This framework points out that humans have always had a quest for the spiritual side of existence and a determination of the purpose of life. Young children seek answers about life here on earth and life beyond. They wish to know what makes us different from other living things, what is the source of suffering, how happiness can be found, what happens after death, and other fundamental questions. These are questions addressed by all major religions and should be addressed in the curriculum of this province. Although the school has an obligation to provide opportunities to address these questions, the church and home carries greater responsibilities in this area.

    Students in this province must recognize that they live in a world that is truly multi-cultural and multi-faith and that each person can value and celebrate his/her faith. Religious and denominational intolerance can only be eliminated when individuals have a greater understanding of the worth of religious views and traditions that are not their own. Although our tradition has been greatly influenced by the Judaeo - Christian, a religious education program should provide accurate information about other world faiths without diminishing the values and truths found within Christianity.

    Support for a religious education program in this province exists within The AtlanticCanada Framework for Essential Graduation Learnings in Schools. A specific Learning for this province states that "Graduates will demonstrate understanding and appreciation for the place of belief systems in shaping the development of moral and ethical conduct."

    The religious education program proposed for this province is a non-denominational program. Some of the principles and objectives which underlie the curriculum are:

• the curriculum will be non-confessional.
• major attention will be given to Christianity because this reflects contemporary Newfoundland society and its heritage.
• students will be given opportunities to make personal decisions about their own spirituality and religious traditions.
• students will develop an understanding and a respect for different belief systems.
• students will develop an awareness of the influences of religion on local and global events.
• students will acknowledge that human beings share essential truths and experiences that are much more important than those which divide them.
• students will develop a respect for the place and role of parents and faith communities as primary influences on the faith lives of young people.
• through their study of Christianity and other religions, students will come to appreciate the intrinsic worth of each of these religions for its adherents.

Conclusion

    During the past decade the educational system in the province of Newfoundland and Labrador has confronted significant challenges. Declining enrolments in a province with vast and varied geography have meant that difficult decisions have had to be made related to the reorganization of the school system. Movement from a system where the churches have had a considerable impact on the administration of schools and on the delivery of programs to one which removes all legislated authority has been a difficult and demanding one. The system which is developing, however, appears to be a one in which there will be a greater cooperation among those who administer the school system and a greater understanding of and appreciation for the religious beliefs of those who adhere to different denominations and faiths.

    There are those who have concerns about the availability of a religious education curriculum and the opportunities to celebrate religious observances. Legal opinions state that, under the revised Term 17, religious education courses of a non-denomination nature are guaranteed. The term also makes it clear that "religious observances shall be permitted in a school where requested by parents". It is thus the responsibility of the churches and parents to ensure that the valued religious observances and celebrations are carried out.
 

Dr. H. G. Elliott and The Right Reverend D. F. Harvey, "Education Reform in Newfoundland and Labrador: A Brief Submitted on Behalf of The Integrated Education Committee to the Special Joint Committee to Amend Term 17 of the Terms of Union of Newfoundland with Canada, concerning the Newfoundland and Labrador School System, 1997".

Honorable Roger Grimes, "Education Reform in Newfoundland and Labrador: A Brief Submitted on Behalf of The Government of Newfoundland and Labrador to the Special Joint Committee to Amend Term 17 of the Terms of Union of Newfoundland with Canada, Concerning the Newfoundland and Labrador School System, 1997."

Government of Newfoundland and Labrador, Department of Education, Division of Program Development, Religious Education (Interim Edition), 1998.

Government of Newfoundland and Labrador, Our Children Our Future: Royal Commission of Inquiry into the Delivery of Programs and Services in Primary, Elementary, Secondary Education, 1992.