Chapter 1 — Department of Education

Part 4 The Cussen Commission

The Cussen Report also recommended that schools should have no more than 250 children at one time which would permit the Manager ‘to make every pupil feel that the Manager is his guardian and friend’. With this in mind the Report advocated the division of Artane, which at that time was home to over 800 boys. The Report recommended that Artane be subdivided into four separate schools, each with its own Manager, segregating the children according to age and attainments. However the Christian Brothers argued against the division of Artane in their submission to the Cussen Committee; Again it is said: ‘Artane is too large’. We reply that nevertheless it has exceeded beyond all expectations. We would go further and say that in its largeness lies its chief merit and advantage; for it is size and its multiplicity of activities that afford exercise to those following the various trades, etc within its own precincts...We hold that its great educative value is due to its size, and accompanying circumstances; for if a boy has only moderate intelligence, it must develop owing to the thousand and one influences to which he is subject.

This recommendation of the Cussen Commission was never implemented by the Department of Education and, as preferred by the Christian Brothers, Artane remained as a single institution.

Until the changes brought about by the Kennedy Report in the 1970s, the staff of the schools seldom if ever had any education or training for their exacting role in childcare. The view seems to have been taken by the Department that the training and development of religious and lay staff in the institutions was largely a matter for the religious Orders.

This lack had been perceived by the Cussen Commission, which sent questionnaires to school Managers regarding the qualifications and numbers of teaching staff within their schools. The information received showed a large deficit in the numbers of qualified literary teachers. The schools which completed the questionnaire disclosed that in the girls schools there were 81 teachers of literary subjects of whom only six were trained; the equivalent for senior boys schools was 73 literary teachers of whom 38 were trained. Reformatory Schools’ educational standards were deemed to be of an even lower standard than Industrial Schools: Cussen commented that ‘the standard of teaching and qualifications of the teachers in Reformatories are not high’.

It was also the case that there was a lack of fully trained teachers because, commencing in 1932, on the basis of a request from the Christian Brothers, it became the policy of the Department of Education to allow Brothers to interrupt and defer completion of the required two-year teacher training after one year and to work in schools, with a view to completing their training within three years. In 1943 the Department agreed to extend this to a period of five years. Upon completion of their first year of teacher training the Brothers then became known as untrained assistants, who under the Rules and Regulations for National Schools, were allowed to teach in a temporary capacity for up to five years. This relaxation was extended to the other Orders in 1943 and came to an end only in 1962-63.

Subject to the requirement of industrial training, the same pattern of education, including the same external exams, applied in principle to residents of the Industrial Schools as to the general population.

The Cussen Commission was mandated to examine the: ... (2) the care, education and training of children and young persons in Reformatories and Industrial Schools, and their aftercare and supervision when discharged from these institutions.

Recommendations 20-29 of the Cussen Report addressed these issues.

Each Industrial School signed a commitment that, in view of receiving the grant for literary teachers, out of the Vote for Primary Education, it would comply with the Rules and Regulations for National Schools. Rule 7 of the 1933 Rules and Regulations for the Certification of an Institution as an Industrial School provided that all children should be instructed in accordance with the programme prescribed for National School and, in this regard, children under 14 years of age (juniors) were required to have literary instruction and study not less than four and a half hours, five days a week.

The literary instruction included: Irish, English, Maths, History, Geography, Needlework, Music, Rural Science or Nature Study, Drawing and Physical Education. The Industrial Training, which was particular to the Industrial and Reformatory Schools, included: Cookery, Laundry Work or Domestic Economy (girls), Manual Instruction (boys). At the other stage, Seniors (children over 14) were to have literacy instruction, not less than three hours, five days a week.

Departmental inspectors’ reports, prior to the Cussen Inquiry, described the educational standard of certified schools as satisfactory in general; however the Cussen Report concluded that, ‘in some of the schools the work done is rather mediocre’ and the teaching staff were of ‘slender qualifications’. Artane was specifically mentioned for providing only the minimum standard of literary education. Cussen suggested a number of reasons for the disparity between educational standards in National Schools and Reformatory and Industrial Schools, one being that the school Managers were under no obligation to employ teachers trained to National Schools standard.

The lack of standardised teacher qualifications within the system led the Report to recommend that teachers in both Reformatories and Industrial Schools should have the same qualifications as teachers in National Schools. It was also recommended that teachers in certified schools should receive the same pay and conditions as National Schools teachers. This, Cussen argued, would attract qualified teachers and remove the stigma associated with working within this system. The financing for this was to come from the Vote for Primary Education.

Upon publication of these recommendations the Department of Education began the process of examining their feasibility. In 1939 a number of inspections took place in certified schools in order to examine the qualifications of the teachers and establish the basis for state grants. The reports from the inspectors show that although the Cussen recommendations stated that certified school teachers must be as qualified as National Schools teachers, in practice exceptions were made for teachers who, although not technically as qualified as National Schools teachers, were deemed to deserve the same recognition. Indeed Rule 73 of both 1932 and 1946 Rules and Regulations for National Schools provided for the recognition of ‘untrained’ teachers as National Schools teachers also. It was not until 1946 that a Department of Education circular sent to all Reformatories and Industrial Schools, stated that all religious staff must be qualified under the terms of Rule 85(6) of the Rules and Regulations for National Schools.

In February 1943, following the shift to payment of literary teachers, the Department of Education issued revised instructions to inspectors in relation to Industrial Schools. It was made clear to the inspectors that the programme of instruction in all Industrial National Schools was the ordinary National School programme, except for the Domestic Economy subjects. In furnishing a report on a teacher the inspector was to bear in mind the circumstances in which many of them had been exceptionally recognised, and thus make allowances before deciding whether to rate a teacher as non-efficient. For those teachers whose teaching efficiency was deemed unsatisfactory, the Department approved the recommendation that these unqualified lay teachers should be given other duties or retired with a pension, the cost of which was to be defrayed by the school Managers.

The Cussen Commission included a number of further recommendations with regard to education, including sending children within the system to local National Schools where possible. This policy of sending children to local schools allowed for greater contact with other children. At the time of the Report, the Commission estimated that approximately 33 percent of the schools did send their students to National Schools. This figure did not increase substantially until the 1970s.