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 Education Committee 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
Churches in 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?"

 Prior to the referendum vote the wording of the proposed Term 17 was released
to the province's people:

          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
Atlantic Canada 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.

 Further delineation of these principles is evident in the Curriculum Framework. 
Curriculum materials which existed under the former structures are being used and others
are being developed to meet the needs.  The result will, no doubt, be a strong curriculum
and with periodic modifications will help prepare the students of this province to face the
challenges of the twenty-first century.
 

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.