CHAPTER VIII

CATASTROPHE AND SOCIAL CHANGE

The unchanging Halifax of the years--The causes of social immobility--The new birthday--The indications of change: appearance, expansion of business, population, political action, city-planning, housing, health, education, recreation, community spirit--Carsten's prophecy.

Halifax has had her fair proportion of tribute in her time. Kipling has called her "the Warden of the Honor of the North." Pauline Johnston sings of her pride of situation. As Edinburgh, "it is a city of many charms; beautiful for situation, beyond most of the cities of the world; vocal with history beyond most, for at every turn of its streets some voice from the past 'comes sounding through the toon.'" Her public gardens are the envy of all. Her vistas of the sea are without compare. Her Northwest Arm is a veritable joy. Birds sing in her homes. Cheery wood-fires burn brightly in her open grates. No city of her size is more hospitable than she.

But she has always been a city which has never quite entered into her heritage commercially. Situated where by nature she might well be great, she has always been small. Unambitious, wealthy[152] and little jealous of the more rapidly-growing cities, she has prided herself on being a lover of better things. Commerce and industry were things alien[153] and secular. She devoted herself to standards of art, music, learning, religion and the philanthropies. Charitable and philanthropic institutions abounded. She has had her own conservative English ways. She affected homage to "old families," and to that illusory element "social prestige." She welcomed each new knight which the favor of the king conferred, and grew careless of civic prosperity and growth. She had leaned "too long upon the army and the navy" and her citizens had become "anaemic," "lethargic" and standstill; their "indifference" and "inertia" were a commonplace. Halifax had been complacent and academic rather than practical in her outlook upon the world and her general attitude toward life.

[152] Halifax is the wealthiest city per capita in the Dominion of Canada.

[153] For years real estate was marketed "quietly." In fact, real property was in the hands of one or two specialists only.

Geographically she suffered by her situation on the rim of the continent. She experienced not a little neglect and isolation because she was an undeveloped terminal, and not a junction point. Travellers and commercial men could not visit her _en route_ but only by special trip.

Again "the government has had altogether too many interests in Halifax for the good of the place." "Government-kept towns" are not as a rule "those which have achieved the greatest prosperity." Halifax as a civil-service headquarters and a government military depot was perhaps open to the charge of being at least "self-satisfied." Valuable acres of non-taxable land have been far from stimulating to civic enterprise.

An historic city too, Halifax fell under the blight of overmuch looking backward, and sociologically the back look has been always recognized as the foe of progress. But she has had a past to be proud of--one which throbs with incident and interest. Born as a military settlement, she has been a garrison city and naval station for more than a hundred and fifty years. She has been called "the stormy petrel among the cities--always to the front in troublous times." She has served and suffered in four hard wars. She has gloried in this wealth of years and storied past. Her traditions have been traditions of royalty, blue blood, dashing officers, church parades, parliamentary ceremonies, fêtes, levées and all the splendor and spirit of old colonial times. A newspaper has published daily items of a generation before, and weekly featured a reverie in the past.[154] Old in her years she remained old in her appearance, old in her ways, and in her loves. She boasted old firms which have kept their jubilees, old churches wherein was cradled the religious life of Canada, an old university with a century of service. Each noon a cannon boomed the mid-day hour, and like a curfew sounded in the night.

[154] _The Acadian Recorder_, C. C. Blackadar, editor.

Search where one will, it would be difficult to find another city which has more completely exhibited the causes of social immobility as set forth by sociology. For there are, it must be remembered, causes of immobility as well as factors of social change. They may be geographical difficulties, or elements more distinctively social--an over-emphasis of government, discouraging innovation, too great a "volume of suggestion," the drag of "collective customs and beliefs," a "traditionalist educational system," the "inheritance of places and functions" tending to arrest development, "government, law, religion and ceremony, hallowed by age."[155] All these reënforce the conservative tendencies in society and preserve the _status quo_.[156]

[155] Ross, Edward A., _Foundations of Sociology_ (N. Y., 1905), ch. viii, p. 197.

[156] There are other causes of conservatism. A comparative freedom from disasters in the past is one. Halifax has suffered few in her entire history. Indeed the cholera epidemic is the only one of any consequence. She remained one of the last large wooden cities. Her sister city, St. John, was stricken by a disastrous fire and stands to-day safer, more substantial, more progressive in every way.

Again communities are generally conservative in character when a large percentage are property-holding people. It was one of the surprises of the Halifax catastrophe that so large a number of citizens were found to own at least in part the homes they lived in.

There are other questions which the sociologist would ask if it were possible to carry the investigation further. Is the community loath to disturb the existing relations or to resort to extreme means to achieve desired ends? Or is it eager to sweep away the old, to indulge in radical experiment and to try any means that give promise of success? He would study too the distribution of people relative to their interests. Is there a majority of those whose experiences are narrow and whose interests are few? Or is there a majority of those who have long enjoyed varied experiences and cultivated manifold interests, that yet remain harmonious? He studies the character of the choices, decisions, selections in a people's industry, law-making, educational and religious undertakings. It is thus that he proceeds in diagnosing a population as to the degree of conservatism and to discover what the ideal community should be.--Giddings, Franklin H., _Inductive Sociology_ (N. Y., 1909), p. 178, _et seq._

Diagnosis in detail is not essential here. Up to the time of the disaster Halifax had certainly preserved the _status quo_. We need not labor the how and why. Tourists had returned year after year and found her unaltered. "Dear, dirty old Halifax" they had called her. They had found business as usual,--old unpainted wooden houses on every side, unswept chimneys, an antiquated garbage system and offensive gutters; the best water and the poorest water system an inspector ever examined; the purest air but the most dust-laden in a storm; an obsolete tramway,[157] a "green market," ox-carts on the main streets, crossings ankle-deep with mud, a citizenship given over to late rising. Instead of making the city they had been "letting it happen." The "transient, the good-enough, the cheapest possible" had been the rule of action.

[157] Halifax has now one of the best equipped tramway systems to be found anywhere. There has recently been appropriated the sum of $200,000 for sewers, $150,000 for water, $300,000 for street paving.

Such has been the unchanging Halifax of the years. But the old order changeth. The spell of the past is broken. A change has come over the spirit of her dreams. There are signs that a new birthday has come. The twenty-first day of June was the old Natal Day, kept each year with punctilious regularity. But Halifax is now just beginning to realize that there was a new nativity, and that it dates from December--that fatal Sixth. "Sad as was the day, it may be the greatest day in the city's history."

Almost instinctively since the disaster Halifax has come to see the sources of her weakness and of her strength. Her geographical position which once meant isolation[158] will henceforth be her best asset. Just as the geographical expansion of Europe made the outposts of the Old World the entrepôts of the New, so the expansion of Canada and of Nova Scotia--the province with the greatest number of natural resources of any in the Dominion--to the newly awakening city appears full of substantial promise. It will be largely hers to handle the water-borne commerce of a great country. Henceforth the ocean will become a link and not a limit. World-over connections are the certainties of the future, bound up inevitably with the economic and social solidarity of nations. Closer to South America than the United States, closer to South Africa than England, closer to Liverpool than New York, Halifax sees and accepts her destiny, forgets the inconvenience and loss she has undergone and the many annoyances of blasting and of digging, that the facilities of her "triple haven" might be multiplied and the march of progress begin. "The new terminals with their impressive passenger station, will not only be an attractive front door for Halifax, but will fit her to be one of the great portals of the Dominion."

[158] Halifax long felt herself to have been commercially a martyr to Confederation.

There has come upon the city a strange impatience of unbuilt spaces and untaxed areas sacred for decades to military barracks and parades. She has urged for some immediate solution, with the result that military property will be concentrated and many acres released to the city for its own disposal.

Whether the pendulum will swing so far as to imperil the retention of old historic buildings, time-stained walls, and century-old church-yards is not yet apparent; although suggestions have been made which would have astounded the Halifax of a generation ago. Certain it is that a period of orientation is at hand. There is a stirring in the wards and clubs for progressive administration and modern policies. "Here as elsewhere the time has now come for clear thinking and the rearrangement of traditional thought."

Indications of change are already abundant. The first to note is that of appearance. For illustration may be quoted an editorial published near the second anniversary of the explosion:

Halifax has been improving in appearance since the explosion, exhibiting very sudden changes at particular points. One almost forgets what the city was like about ten years ago. Still there is a great deal to be done in the way of improvement to our streets. The move in the direction of permanent streets is an excellent one and if carried out as designed will be an improvement and saving to the city.

The report of the Secretary of the Board of Trade makes the following reference to the change in appearance of the city:

One of the pleasing features in reference to both the wholesale and retail business of Halifax is the improved condition of premises over a few years ago; retail stores are now having up-to-date and attractive fronts, while wholesalers are improving their show-rooms and thereby increasing their sales.

The Mayor writes regarding the sidewalk improvement:

Some twenty miles of concrete sidewalks to be constructed are on the order paper to be taken in turn so as to be as uniform as possible. This will go a long way toward improving the appearance of the city.

As to the change in the style of houses the Mayor states:

A pleasing feature of the new construction is the departure from the former square box style of dwelling, also the method of placing rows of houses exactly in the same style. Today homelike houses of modern design, set back from the street with lawns in front are the order of the day--bungalows are particularly in favor.

Fine new residences are being built, apartment ideas are spreading, new lights are being tried out, a new tram company has taken hold. Indeed one citizen is credited with the words: "It is almost a sacrilege that Halifax should be so changed."

The consciousness of change is seen in an altered public opinion and the beginnings of a new civic outlook. Evidence of the new note is a statement by one of the progressive Halifax firms:

Halifax is going to make good. Outside firms are taking up valuable sites in our business districts. The banks are increasing their activities. Some of the biggest industries are coming our way. Surely everything points toward prosperity.

Another feature indicative of the changing consciousness, which has infected a much wider region than Halifax itself is the plan now making rapid progress for an Old Home Summer, to be held from June to October, 1924. The project has already received legislative recognition. An effort will be made to recall former residents on a scale such as has never been attempted before. The committee in charge is made up of many prominent citizens and the "1924 Club" grows. One may observe still another indication of the determination to progress in the recent completion of a system linking-up Halifax by telephone with Montreal, Toronto, New York and Chicago.

Indices of business conditions are far from satisfactory, yet the items used in their computations are the only ones upon which variations may be even roughly gauged. Roger Babson puts as the leading considerations: (1) Building and real estate; (2) bank clearings; (3) business failures. Other symptomatic facts are postal revenues, tramway receipts, exports, taxes, interest rates, insurance, wages and hours, commodity prices, unfilled orders, immigration and unemployment.[159]

[159] Chaddock, Robert E., Unpublished Material.

With regard to the first the following statement issued by the Mayor is significant. He says:

The year 1919 has been one of exceptional prosperity in the City of Halifax. It has been a record year for building. Permits to the approximate value of $5,000,000 have been issued to the engineer's office, the largest amount by far in its history, the amount being practically ten times that of 1913, or the year before the Great War commenced. A part of this only can be attributed to the terrible explosion of 1917.

He refers to the great amount of construction going on in the western and northwestern parts of the city which were relatively untouched by the disaster. The Mayor further states:

It must be remembered that it is only two years since the devastation caused by the explosion and strangers in the city have considered it wonderful that we are so far advanced in building up that portion which only a year ago had not a house upon it.

The following tabulation gives the building figures according to the permits issued at the City Hall. It shows a remarkable recent increase.

Building Permits

1910 .................... $471,140 1911 .................... 508,836 1912 .................... 589,775 1913 .................... 839,635 1914 .................... 874,320 1915 .................... 1,066,938 1916 .................... 1,177,509 1917 .................... 844,079 1918 .................... 2,955,406 1919 .................... 5,194,806

With regard to real estate the Mayor writes in December 1919

The increase in the selling values of properties is remarkable. Business property has taken a jump in value, and it is difficult to get for business purposes property well situated unless at very high prices. Property has been known to change hands within a year at approximately double the amount originally paid.

The Secretary of the Board of Trade reports:

Real estate has been active, and prices have been obtained greatly in excess of what properties were valued at in pre-war days.

In the matter of bank clearings[160] the following table indicates a very considerable change:

Bank Clearings

1910 .................... $95,855,319 1911 .................... 87,994,043 1912 .................... 100,466,672 1913 .................... 105,347,626 1914 .................... 100,280,107 1915 .................... 104,414,598 1916 .................... 125,997,881 1917 .................... 151,182,752 1918 .................... 216,084,415 1919 .................... 241,200,194

[160] The reader will of course remember the general inflation of currency.

As to business failures the Secretary says:

Business failures have been few--practically the whole amount of the liabilities will be made up of one failure, and it is believed the loss to creditors in this particular case will be slight.

Additional Indices

Gross Postal Revenue Tramway Receipts (gross)

1910 ................ $114,318 $477,109 1911 ................ 119,561 502,399 1912 ................ 132,097 539,853 1913 ................ 140,102 605,933 1914 ................ 147,943 645,341 1915 ................ 154,499 718,840 1916 ................ 167,594 559,513 1917 ................ 255,815 859,667 1918 ................ 305,412 998,702 1919 ................ 349,507 1,258,503

Among other assurances at the new prosperity and the beginnings of fresh faith in the city's future is the coming of new large business interests into the city. Among the largest construction work is the building of the Halifax shipyards upon the explosion ground, involving an outlay of ten millions of dollars. There is the ever-extending plant of the Imperial Oil Company, which will eventually make of Halifax a great oil-distribution port. There is the continuation of the thirty-million-dollar scheme of modern terminal facilities, which have been constructed so close to the ocean that a ship may be out of sight of land within an hour after casting off from the quay.

In short there has been, as has been said, an "impetus given to business generally." That the impetus will continue there is every prospect. Halifax may experience a temporary wave of depression when such waves are flowing elsewhere. But today there are fewer doubters and more believers. The day of new elevators, new hotels, harbor-bridges and electric trains is not very far away. The prophecy of Samuel Cunard made in 1840--when he inaugurated the first Trans-Atlantic line--that "Halifax would be the entering port of Canada"--seems destined to fulfilment.

As regards population after disasters Hoffman writes:

Even an earthquake such as affected the city of San Francisco may not materially change the existing numbers of the population after a sufficient period of time has elapsed for a reassembling of the former units, and a return to the normal conditions of life and growth.[161]

Yet as before remarked, the catastrophe at Halifax eclipsed all preceding disasters to single communities on the Continent of America in the toll of human life.[162] In the San Francisco earthquake the loss was four hundred and ninety-eight; at the Chicago fire three hundred; at the Iroquois theatre fire in the same city, five hundred and seventy-five; at the Chester explosion one hundred and twelve; at the Johnstown flood two thousand. It is now estimated that the disaster at Halifax probably passed this latter figure, decreasing the city's population by four per cent. Notwithstanding this heavy draught upon the population, the 1918 volume of the Halifax Directory contained six hundred and fifty more names than the previous year.

[161] Hoffman, Frederick L., _Insurance, Science and Economics_ (N. Y., 1911), ch. ix, p. 337.

[162] In the Texas flood of 1900 there were lost 5,000 lives, but they cannot be said to have been all associated with a single community.

In the light of this consideration the following indication of the growth of population is also of contributory interest.[163]

Table

1911 ...................... 46,619 1912 ...................... 46,619 1913 ...................... 47,109 1914 ...................... 47,109 1915 ...................... 47,473 1916 ...................... 50,000 1917 ...................... 50,000 1918 ...................... 50,000 1919 ...................... 55,000 1920 ...................... 65,000[164]

[163] Figures kindly supplied by Mr. John H. Barnstead, Registrar, Halifax.

[164] The Directory of 1920 estimates the present population to be 85,000.

An index of the growth of practical civic interest upon the part of citizens is revealed by the comparison of the numbers participating in political action by means of the vote. Recent figures for Halifax are:

Political Action

Year Purpose Eligible No. Percentage Percentage voters voting of Indifference of Interest

1918 ......... For Mayor 7,632 2,769 63.8 36.2 1919 ......... " " 8,890 4,264 52.1 47.9 1920 ......... " " 11,435 5,491 51.99 48.01

Instead of the disaster resulting in disheartenment and a gradually diminishing civic interest, the percentage of indifference is smaller and the percentage of interest is larger for 1920 than for 1919, and the percentage of interest for 1919 is larger than that for the previous year. The number of eligible voters also shows increase. "The campaign [for 1920] has marked a new era .... and will make it easier to institute new reforms."[165]

[165] Halifax _Morning Chronicle_, April 29, 1920.

Of further sociological interest is the change affecting city-planning, civic improvement, housing, health, education and recreation.

In the realm of city-planning[166] and civic improvement, Halifax is awaking to the importance of taking advantage of an opportunity which comes to a city but seldom save through the avenue of disaster. The present Town-planning Board was formed as a result of the Town-planning Act of 1915. A board of four members, including the city engineer constitute the committee. The limits of the area to be brought under the scheme were still undecided when the explosion came. The disaster "hastened the resolution" of the Board. "When the disaster came it seemed that things would have to come to a head." Mr. Thomas Adams, the Dominion Housing and Town-planning Advisor, was brought to Halifax to help determine what should be done. "The disaster simply had the effect of bringing to a point certain things which were pending at the time. If that event had not occurred we would by this time be into a scheme, though possibly not so far as we are." Today the limits of the area have been defined and the scheme is nearly ready for presentation to the Council for adoption. The Dominion Town-planning Advisor's assistant reports that real progress has been made in the Halifax plan dealing with the proposed zoning of the city into factory, shopping and residential districts, the provision for future streets, street-widening and building lines, and suggestions for park and aerodrome sites. In the devastated area he has remarked progress in street-opening, in grading of the slope and in architectural treatment of the houses. Five hundred trees and three hundred shrubs have been ordered to be planted in this area. The whole area is under the control of the Relief Commission, for the Act appointing the Commission gave it the powers of a Town-planning Board.

[166] The earliest city-planning was mediaeval. Halifax was laid out by military engineers with narrow streets--the "ideal was a fortified enclosure designed to accommodate the maximum number of inhabitants with the minimum of space." In 1813 a town-planning scheme was set on foot for the purpose of straightening streets, the removal of projections and banks of earth and stones which at that time existed in the center of streets. Considerable betterment resulted but unfortunately many fine trees were cut down.

The disaster may thus be said not only to have hastened the resolution of the existing committee, but to have produced two planning-boards instead of one. Each must keep in mind the true ideal. For it is not the "City Beautiful" idea, but that of utility that is fundamental to city-planning. It is a principle to reduce to the minimum the social problems of community life, to accomplish Aristotle's ideal--"the welfare and happiness of everyone." In so doing civic beauty will not be neglected. "Scientific, sensible and sane city-planning" says an authority "with utility and public convenience as its primary consideration produces beauty--the beauty that is the result of adapting successfully a thing to its purpose." It is in accordance with this principle of civic art that the terminal area is being developed--a work designed by the same architect who planned the Chateau Laurier and the Ottawa Plaza with such aesthetic taste.

To "deep cuttings, spanned by fine bridges, and bordered with trees and pleasant driveways, after the manner of Paris," and to a "waterfront as stately as Genoa's, a terminal station with a noble facade, overlooking a square and space of flowers,"[167] the future will also bring to Halifax

more street-paving, sidewalks, parks, fountains, hedges, driveways, cluster-lighting, statuary, buildings of majesty, spaciousness and beauty. Wires will be buried, unsightly poles will disappear.... With time will come all these things which stamp a city as modern, as caring for the comfort of its people, their pleasure and rest, and health and safety. All these things come with time, effort, development of city pride, and the concentrated desire of a people for them.[168]

[167] MacMechan, Archibald, "Changing Halifax," _Canadian Magazine_, vol. xli, no. 4, pp. 328, 329.

[168] Crowell, H. C., _The Busy East_, vol. x, no. 7, p. 12.

The question of housing is recognized as an old Halifax problem. It was already an acute one when the blow of the catastrophe fell and multiplied the difficulty a thousand-fold. The Relief Commission has grappled with its end of the problem, namely, the housing of the many refugees who were first accommodated in lodgings and in temporary shelters.[169] The old sombre frame-constructed buildings of the pre-disaster days are being replaced with attractive hydrostone. A hard-working wage-earning community is stepping out of indifferent structures into homes both comfortable and well-ordained.

[169] A model housing development of 346 houses in the new north end has followed the disaster. "It is reasonable to assume," writes an observer, "that the standard of living will ascend. Already the influence of these new houses is showing itself in the homes that are springing up all over the city."

But the old problem would have still remained unsolved, had not the city authorities caught something of the reconstruction spirit and felt the sharp urge of increasing difficulties. Action has been at last precipitated. However, lacking in comprehensiveness the first attempts, the city has bestirred itself and has come to realize adequate housing to be a supreme need of the community and vitally associated with the city's health and welfare. A Housing Committee of five members has been formed, having as chairman a man of widely recognized building experience and as director of housing, a capable citizen. It is intended to make full use of the federal housing scheme, in a practical way, the City Council having reversed its former decisions and accepted by by-law the obligation which the government act requires. It is hoped in this way to promote the erection of modern dwellings and to "contribute to the general health and well-being of the community."

Thus the principle of promotive legislation and government aid, which when finally accepted in 1890, began the remarkable housing reform in England, has entered the City of Halifax, and will eventually write a record of increased health, comfort and contentment. How soon that record is written will largely depend upon the citizens themselves and their response to a leadership that is forceful as well as wise.

The matter of health organization in Halifax affords perhaps the most significant contrast with the pre-disaster days. Prior to the catastrophe public health organization was not a matter for civic pride. The dispensary, which is often regarded as the index of a city's care for health, had received scant support and could only perform indifferent service. Adequate sanitary inspection could not be carried out for want of inspectors. The death rate[170] had averaged about twenty percent for a period of ten years, and the infant and tuberculosis mortality had been tremendously high--the former reaching the figure of one hundred and eighty-two.[171] There was no spur to progressive administration. The city was too ill-equipped to cope with such conditions.

[170] London's is 14.6, New York's 13.6.

[171] New York's is 90, New Zealand's 60.

Today Halifax has the finest public health program and most complete public health organization in the Dominion. The fact that this is so is in very close relation to the catastrophe inasmuch as an unexpended balance of relief moneys[172] has been redirected by request for health purposes in Halifax. A five-year policy has been inaugurated. Fifty thousand dollars per year of the relief money, fifteen thousand dollars per year of the Canadian government money and five thousand dollars per year each, of the city and provincial money are to be expended in the five-year campaign. The sum totals seventy-five thousand dollars per year, or practically one dollar per capita.

[172] These funds are from the munificent gift of Massachusetts. A Massachusetts-Halifax Health Commission has been formed--Dr. B. Franklin Royer is the executive officer.

A completely equipped health centre has been established including all the essential remedial and educational agencies, namely, pre-natal, pre-school-age, school-age, tuberculosis, venereal disease, eye, ear, nose and throat clinics. There will also be provision for the growth of health ideas through mother's classes, first-aid, and sanitary leagues. A public health course for nurses is included in the educational campaign.[173] A most successful baby-saving exhibit has been held, and the plan calls for a full-time tuberculosis specialist.

[173] Dalhousie University has recently graduated the first class of nurses in Canada to receive the Diploma of Public Health.

Upon the part of the civic authorities there has been a greater realization of responsibility. Progressive steps have been already taken including the appointment of a Doctor of Public Health, and the provision of district sanitary inspectors. Restaurants and all places where food is exposed for sale are being systematically inspected with a view of effecting improvements. A single instance of commendable activity along sanitary lines is the prohibition of movable lunch cars, which have been seen on the streets of Halifax for years. The removal of a lot of dwellings unfit for occupation is receiving the attention of the officials. In fact it is the intention of the present Council to improve conditions throughout the city generally as quickly as is feasible to do so. Another illustration of the direction of attention to modern social methods is the present discussion of plans for a psychiatric clinic for mental hygiene and the discovery of defectives, especially those attending the schools. Still another indication of interest in child welfare is the fact that a clinic for babies was established in a central locality and a nurse for babies regularly employed. The hitherto meager hospital facilities are being amplified by the building of a maternity hospital and the enlargement of the children's hospital,--a centralization plan of hospital service being a unique and distinctive feature. In the way of industrial hygiene a full-time nurse is employed in the ship-building plant and here also safety policies have been introduced and have reduced accidents to a minimum. The movement for the control of preventable disease is gaining impetus and a modern tuberculosis hospital is being established. The Victoria General Hospital is being enlarged and extended, the additions having an estimated cost of half a million dollars.

But it is not alone the activities of the Health Commission but also the earlier vigorous policy of disaster medical relief, which is seen reflected in the growing sense of community-responsibility for health conditions. Halifax has come to see the principle fundamental to all health reform, that public health is a purchasable commodity and that improvement in vital statistics is in close correlation with the progress of health organization. It remains to be seen whether so favored a community will also lead the way in the registration and periodic health examination of every individual citizen which is the final goal of all policies of health reform.

The standards of education have always been high in Halifax. She has been the educational center of the Maritime Provinces. Her academic attainments have brought to her much distinction and not a little glory. Her public schools boast many a fine record to furnish inspiration to each successive generation. To secure appointment to the Halifax teaching staff the applicant must possess the highest qualifications. But however much educational leaders may desire them, modern methods and up-to-date equipment await in large measure the public will. Only where there is a will is there a way. That the public will in Halifax is becoming awakened to the vital rôle her educators play is being proven by the response to the campaign for the expansion of Dalhousie University. That response has been most generous and general, while local contributions have been amplified by large benefactions from the Carnegie Corporation and the Rockefeller Foundation. Of the latter benefactions together amounting to one million dollars--four hundred thousand will be expended upon buildings and equipment. The modernizing process is shown again in the decision of the university to establish at once a Faculty of Commerce and to encourage the teaching of Spanish and Portuguese in the educational institutions of the city.

In the old teaching methods all are given the same course of instruction regardless of the individual mental differences. Today the effort is to provide an education to fit the mind rather than to force the mind to fit the education. In the public schools of Halifax there are not lacking indications which herald the coming of the newer pedagogy. Among these may be mentioned the opening of sub-normal classes for retarded children, experimentation with the social-recitation system, the display of Safety-First League posters and the development of those departments already established, _viz._ vocational and domestic training, manual and physical education, medical inspection, supervised playgrounds, school nurses, dental clinics, and the wider use of school plants in evening technical classes.

Halifax will sooner or later decide to employ to the fullest degree all the opportunities which child-training affords. The school system is an institution of society to mediate between a child and his environment. Children must learn to do and to be as well as to know. Their plastic minds must receive practice in resistance to domination by feeling and in the use of the intellect as the servant and guide of life. To the children of Halifax is due eventually a thorough training in citizenship. This is the last call of the new future in education. It rests upon the twin pillars of educational psychology and educational sociology.

Recreation is still another sphere of civic life wherein the City of Halifax has taken a forward step. In making her plans for the future she has not forgotten that the rebuilt city should contain every facility for children to grow up with strong bodies and sane minds; as well as public provision for the leisure time of the adult population. A Recreation Commission has been formed made up of representatives of the various civic bodies and from the civic and provincial governments.[174] A playground expert was called in by the city government, who after study of the situation and conference with local groups, recommended a system of recreation as part of the general city plan. Already marked progress has resulted; indeed it has been said that the "municipal recreation system of Halifax has made a record for itself." A hill of about fifteen acres in the heart of the devastated area has been reserved for a park and playground. The city has built and turned over to the Commission a temporary bath-house, and has set aside the sum of ten thousand dollars for a permanent structure. The plans contain recommendations for minimum play-space for every school child, a central public recreation area, an open-air hillside stadium, as well as a community center with auditorium, community theatre, natatorium, gymnasium, and public baths. The real significance of this movement Halifax has not, herself, as yet fully realized. Just as there is a close relationship between health organization and mortality tables, so there is a close association between open spaces, street play, _etc._, and juvenile, as well as other forms of delinquency.[175] The moral value of organized recreation was itself demonstrated in the war, while the increasing menace of industrial fatigue, as well as the fact of the shorter working-day, call for public recreational facilities as a social policy. This policy is not however fully carried out with merely constructive and promotive action. It must be followed by restrictive and regulatory control of commercialized recreation, and wise and adequate systems of inspection for amusement in all its forms. This is the path of progress in socialized recreation.

[174] It should be stated that the supervised playground movement had been developing in Halifax for a period of fourteen years, first under the Women's Council, afterwards under a regularly incorporated association with which the Women's Council merged.

[175] In view of the explosion and the resulting housing conditions, an increase in juvenile delinquency might have been expected, but the "playgrounds which were established immediately after the disaster, and which adjoined both of the large temporary housing projects, are, it is felt, responsible for the excellent conditions which exist. The records of the Superintendent of Neglected and Delinquent Children show that there was an actual decrease in the number of juvenile arrests in 1918 over 1917."--(Leland, Arthur, "Recreation as a Part of the City Plan for Halifax, N. S., Canada," _Playground_, vol. xiii, no. 10, p. 493.)

Progress in coöperation has also to be noticed. There has been a new sense of unity in dealing with common problems. The number of things which perforce had to be done together during the catastrophe was great. This doing of things together will be continued. The establishment of the Halifax Coöperative Society is initial evidence of a movement towards coöperative buying. Coöperation for community ends even now is revealing itself in the new interest for the common control of recreation, health conditions, _etc._ "The disaster," runs an article in the press, "has given our social movement an impetus. The social workers of the different creeds and classes have discovered each other and are getting together."[176] The organization of social service which only a few years back took a beginning in the form of an unpretentious bureau has shot ahead with amazing rapidity and now exercises an influence of coördination upon the churches, charities and philanthropic societies of the city.

[176] Halifax _Evening Mail_, March 22, 1918.

The unifying process is well illustrated by the increased coöperation upon the part of the churches. Following the disaster the churches of the city united into a single organization for relief service under the chairmanship of the Archbishop of Nova Scotia. Since then a Ministerial Association has been formed which has directed coöperative effort along various lines and has exercised pressure upon those in authority where the best interests of the city were involved.

Thus the City of Halifax has been galvanized into life through the testing experience of a great catastrophe. She has undergone a civic transformation, such as could hardly otherwise have happened in fifty years. She has caught the spirit of the social age. This spirit after all means only that the community is just a family on a larger scale, and the interests of each member are interwoven with those of all. But merely to catch the spirit will not suffice. It must be cherished through an inevitable period of reaction and passivity, and then carried on still further into the relations of capital and labor, into the realm of socialized recreation and into those multiform spheres of social insurance whither all true social policies lead.

All these converging lines taken not singly but together constitute a very real basis of faith in the city's future, and of hope for permanent changes for the better. Perhaps this attitude cannot be more fittingly expressed than in the words of Carstens:

The Halifax disaster will leave a permanent mark upon the city for at least a generation, because so many of the living have been blinded or maimed for life. But it is possible that the disaster may leave a mark of another sort, for it is confidently believed by those who took part in the relief work during the first few weeks that Halifax will gain as well as lose. The sturdy qualities of its citizens will bring 'beauty out of ashes.'

But it is rather for social than for material progress that the sociologist will seek and Carstens continues:

It may reasonably be expected that through this Calvary, there may be developed a program for the care, training and education of the sightless as good if not better than any now existing, that medical social service will be permanently grafted upon the hospital and out-patient service of the community, and that the staff of teachers of the stricken city, by direct contact with the intimate problems of the families of the children they have in their class-rooms may acquire a broader view of their work. If there should result no other benefits, and there are likely to be many, as for example city-planning, housing and health, the death and suffering at Halifax will not have been in vain, will not have been all loss.[177]

[177] Carstens, C. C., "From the Ashes of Halifax," _Survey_, vol. xxxix, no. 13, p. 61.