Chapter 2 — History of Industrial schools and reformatories

Legislation and establishment

It may be worth quoting from section 44 of the Children Act, 1908 since this is the closest the legislation comes to what later generations would call a mission statement for the schools. This section states: The expression “industrial school” means a school for the industrial training of children, in which children are lodged, clothed and fed, as well as taught.

The definition of a ‘reformatory school’ is defined in the same terms by section 44 of the 1908 Act, but, with the substitution of ‘youthful offenders’ for ‘children’.

Policies underlying the School system

Until the legislation establishing the schools, the law seldom intervened in the affairs of a family. The new legislation, however, gave Magistrates’ Courts (the pre-Independence equivalent of the District Court) jurisdiction to intervene in the interest of the child, usually of the poorer class, to protect their physical or moral wellbeing. Doing so meant a major interference with the family and parental rights.

Barnes9 states that, as originally conceived, industrial schools had two objectives: the first being to provide appropriate skills and training to enable children ‘to be capable of supporting themselves by honest labour’; the other being to reform the child’s character. To achieve these ends, it was considered necessary that ‘the links between child and home [be] ruthlessly cut’, on the basis that the home was a bad influence. For this reason, committal was generally imposed for the maximum period, correspondence between the children and families was vetted, and parental visits were allowed only at the discretion of the Manager.

Religious ownership and management

Each type of school was to be independently managed and run, though subject to State approval and inspection. Thus, a fundamental feature was private, largely religious philanthropy. It seemed natural that churches should take responsibility for providing assistance to the poor. In Ireland, Catholic emancipation in 1829 made the Church a central institution. It was powerful both at the level of the Hierarchy and, even more so, at grassroots where, in the absence of a trusted landowner class, the priests who were educated and nationalistic were regarded as community leaders. Apart from religion, the main focus of the Church’s influence lay in education. The burgeoning character of the Catholic Church in the post-Famine period may be illustrated by the simple fact that the number of nuns increased eightfold between 1841 and 1901. There was huge growth in the numbers of priests and Brothers as well as nuns, and the establishment of a comprehensive range of services in the fields of education, health and social services. Moreover, there was even surplus capacity, so that many of the Orders exported personnel and services to America, Canada and Australia.

A related issue was the fear of each of the major religions of proselytisation by the other side. On either side, this was not an unreasonable fear: Catholics were moved by the fact that the last relic of Catholic subservience was not gone until 1829. The ‘established Church’ was Protestant, in particular Anglican, and Protestant institutions were more richly resourced. Thus, a major concern of the Catholic side, which persisted into the twentieth century, was to keep Catholic orphans from being taken into the ‘Birds-nests homes’ run by the Protestant orphan societies. On the other side, the immense potential of the Catholic Church as the church of the great majority of the people was evident. From the perspective of both sides, the schools allowed an opportunity to imbue children with religion and to present a caring image of the Church.10

In response to these considerations, the main modification of the English model, contained in the Irish Industrial Schools Act of 1868, concerned safeguards to prevent any change in the religion of a child committed. Catholic and Protestant children had to be committed to separate schools. The control of the religious was also copperfastened by a provision that State funds could be used only for maintenance and not for capital expenditure to set up State schools; and that funding would be on a capitation basis. This avoided any suspicion of the Government favouring one denomination, which might have existed had payments been based on the institution as an entity. In addition, this met Catholic resistance to State ownership. From the perspective of the State, the cost would be less, and it was believed that schools conducted by voluntary management would retain an adaptable character, and that their pupils would have better opportunities for employment than those afforded by juvenile houses of correction under official management.

Finance

A distinction that was observed in the financial regime of the schools was that recurring expenditure on food, staff equipment, etc was the responsibility of the State. This was funded by central and local government on a capitation basis,11 whereas capital expenditure was funded by the owners of the schools. This was an incentive to maximise numbers and not to spend money on capital items such as buildings, sports facilities or other benefits for the children.

A check was imposed by the Treasury on the granting of new certificates between 1875 and 1879, in order to keep down its contribution. As a result of this policy, admissions were restricted. Moreover, several new schools were built, their founders being under the impression that they would be certified on completion, yet they failed to receive certificates immediately. One such school was built for Roman Catholic girls at Mallow. The building was erected in 1873, but certification of this School was refused for six years after its completion.12

The Children Act, 1908 dropped the restriction on the use of public funds for capital expenditure but, in contrast to the position in England and subject to one or two exceptions, Irish local or, until the 1940s, central government did not use this power. Indeed, the reality is that Irish local authorities were often overdue in paying the contributions, even to maintenance, which they were legally obliged to make.

The schools were founded either by the philanthropic donation of a premises and land by a concerned land owner, or the capital required to build the schools was raised by public subscription from a group of community-minded citizens, with the major impetus in collection and spending coming from the religious authorities. For instance, almost immediately after the legislation was enacted, the Dublin Catholic Reformatory Committee was established to meet this financial challenge.

Another example was the Cork Reformatory Committee,13 set up by the Cork Society of the St Vincent de Paul in 1858. They purchased a 112-acre farm at Upton, 14 miles from Cork City, for use as a reformatory school, and they asked the Rosminian Order to take charge of it, as they had experience of operating reformatories in England. A building was completed on the site in 1860 at a cost of £5,000, and the lease of the lands and buildings was transferred to the Rosminians in 1872.14 This operated as St Patrick’s Reformatory School in Upton, County Cork until 1889 and, thereafter, as an industrial school.15

In 1869, Lord Granard, the local landowner, invited the Sisters of Mercy to establish a school in Newtownforbes, County Longford. He gave the Sisters a house for use as a convent and gardens, rent free, and an annual cash donation of £90.16 In the same year, Our Lady of Perpetual Succour Industrial School, Newtownforbes, was certified for the reception of 145 girls.

One of the legacies of this piece-meal way of establishing the schools was that there was an uneven geographical distribution of schools throughout Ireland, which had a considerable impact on whether children were likely to end up in an industrial school.

‘Industrial’ training

The principal virtue claimed for the schools, by the utilitarian thinkers who championed them, was that they would equip the residents with skills, which would enable them in later life to survive by steady, if humble, employment. In the nineteenth century, this was accomplished in the case of girls. According to Ó Cinnéide and Maguire:17 Girls’ schools provided a narrower range of industrial training than boys schools, focusing on domestic service, laundry, and sewing. The majority of girls who left industrial schools went into domestic service. Indeed the schools were a vital source of domestic servants, particularly because the schools were among the few institutions that provided a coherent training program for domestic servants. Some schools, including High Park and St. George’s in Limerick, were particularly noted for their training program, and girls from these schools had no trouble securing work as servants. Goldenbridge Industrial School was also an important source of trained domestic servants. Mona Hearne, author of Below Stairs, shows that of the 877 girls discharged from Goldenbridge between 1880 and 1920, over 300 were placed in service; the nuns kept in touch with these girls for at least three years after discharge, and only rarely were bad reports received.