Ryerson claimed[100] that he agreed to the amended Scott Bill only on the distinct understanding that it was to be a finality in Separate School legislation. He also claimed that the Roman Catholic Bishops of Quebec, Kingston and Toronto accepted the Bill as a final settlement. But nothing is final in legislation, and Dr. Ryerson ought to have known this. Legislation is as much the result of a process of evolution as any other institution of human society, and no three or four men, whether priests or laymen, could speak authoritatively and finally for the thousands of Roman Catholics in Upper Canada. [100] See D. H. E., Vol. XVII., p. 219. Separate Schools increased slowly. In 1863 they numbered 115, with 15,000 pupils, the Public Schools having during the same year 45,000 Roman Catholic pupils. In 1864, Separate Schools had increased to 147 with 17,365 pupils. In 1871, the number was 160, with 21,000 pupils. Almost immediately after the Scott legislation of 1863, an agitation began for further amendments to the Separate School Act. Ryerson made strong objections partly on the ground of the alleged compact of 1863, and partly on the ground that no legislation could possibly make Separate Schools really popular and efficient outside of large towns and cities. In 1865, the school administration was attacked by James O'Reilly, of Kingston, and, in a memorandum prepared as a reply to these attacks, Ryerson goes into some detail to justify his Separate School policy and reiterates his firm belief that sectarian schools must ever be relatively inefficient. He concludes as follows: "The fact is that the tendency of the public mind and of the institutions of Upper Canada is to confederation and not isolation, to united effort and not divisions. The efforts to establish and extend Separate Schools, although often energetic and made at great sacrifice, are a struggle against the instincts of Canadian society, against the necessities of a sparsely populated country, against the social and political interest of the parents and youth separated from their fellow-citizens. It is not the Separate School law that renders such efforts fitful, feeble and little successful; their paralysis is caused by a higher than human law, the law of circumstances--the law of nature, and the law of interest. "If, therefore, the present Separate School law is not to be maintained as a final settlement of the question and if the Legislature finds it necessary to legislate on the Separate School question again, I pray that it will abolish the Separate School law altogether; and to this recommendation I am forced after having long used my best efforts to maintain and give the fullest effect and most liberal application to successive Separate School acts--and after twenty years' experience and superintendence of our Common School system."[101] [101] See copy of Memorandum, D. H. E., Vol. XVIII., pp. 304-316.