Chapter 1 — Department of Education

Part 6 Innovations and Improvements

In 1955, the subject of closure was tentatively mentioned by the Secretary of the Department of Education in negotiations with representatives of the schools. In a letter from the Minister for Education to the Minister for Finance on 21st January 1965, the former noted ruefully that Finance had been urging closures for years and then continued: Naturally your main concern is economy while mine is the upbringing of children. Certain aspects of the matter of transferring children to other schools have to be carefully considered. Many children have god-parents in their school localities and quite a number of children attend schools, national, secondary and vocational outside the industrial school. It may not be possible to accommodate such children suitably if transferred to another district.

In 1950, there were 50 Industrial Schools. In the 1950s five schools closed: four senior boys schools – Baltimore (1950); Killybegs (1950); Carriglea (1954); and Greenmount, Cork (1959) and one girls school, Sligo (1958); but in the case of each of the boys’ schools there were particular reasons that were at least as significant as the general trend. The next closure was Birr, Offaly (1963). During 1964-70, 17 more schools, more than a third of the total, closed, including the senior boys’ schools at Upton, Glin and Clonmel, in each case with the full agreement of the Orders concerned. By the time of the Kennedy Report in 1970, another 13 had closed leaving a total of 29 still operating.

The impression is that the closures that did occur pre-Kennedy (1970) did not come about because the Department pursued a coherent policy and took a considered decision to bring them about. The closures happened because the Orders wished them. On 23rd May 1966, the Managers’ Association wrote to the Department: At their meeting on last Friday there was a consensus of opinion amongst the Resident Manager that most of the Schools will be forced to close. If the present system is not acceptable to the public or the Government the Managers are prepared to close the schools next year, because they feel that the strain of working under present-day conditions is too acute to be continued.

Making allowance for some element of bluff in this letter, it is unlikely that the schools would have expressly raised such a fundamental issue as closure unless they believed that matters had reached crisis point. In 1968, the Manager of Artane visited the Minister to warn him that the Christian Brothers had decided to close Artane, though this closure did not in fact occur until 1969.

One feature of the timing of most of the closures is that they coincided with the doubling in demand for secondary school places, which followed on the abolition of secondary school fees. This was announced suddenly by the Minister for Education, Mr O’Malley, in 1966 and came into effect in August 1967. As a result, enrolment in day secondary schools rose from 148,000 in 1966-67 to 239,000 in 1974-75.

Part 7 The beginnings of change

Both the public and the authorities began to lose confidence in the Industrial School system at the same time. The Christian Brothers believed the ‘public had turned against them’, the image of the schools having being damaged by ‘negative newspaper and television coverage ... and by criticism from professional sociologists, [and even from] the clergy and the bishops’. The Christian Brothers referred also to ‘Authorities charged with improving social matters’, who they felt had become ‘hostile to schools such as Artane... County Councils, the Department of Health and those various organisations involved with the care of children would prefer to put them in foster homes or with families, anywhere but in institutions such as Artane’.

At the same time, there were various practical improvements in the schools, mostly because of rising economic prosperity in the 1960s. The following contemporary account, from Michael Viney’s 1966 Irish Times series, provides some examples: A hundred boys is probably the most any one centre should contain, if the staff are to have any chance of treating them as individuals. So consideration of closing Upton and Letterfrack has not been without its ironies. For a hundred boys, more or less, is just what each of them has now. They were built, of course, to hold far more, and the present capitation system makes it uneconomic to run them at less than three-quarters full – about double their present population. Both Upton and Letterfrack have undergone major reconstructions and improvements in the last few years. The Department of Education has granted large sums to build or convert new classroom wings and the orders themselves have borrowed heavily from the banks to pay for other, very welcome improvements. So just as these schools have been brightened out of all recognition, their future has never seemed more uncertain. Reports and other indicators

In 1961 one of a set of national surveys, a wide-ranging study of Irish education and training by economic experts, was prepared by officials from the Department of Education in cooperation with the Organisation for Economic Co-operation and Development (OECD), under the chairmanship of the economist and ex-civil servant, Professor Patrick Lynch. It included a section dealing with the treatment of children in detention. This section criticised the operation of the schools attributing many of their defects to the inadequacy of the capitation grant and also the substantial surplus capacity within the schools, especially the girls schools, where there was only 37 percent utilisation of space.

In 1965 the Commission on Mental Handicap raised doubts about institutionalisation in a wider context. Its report observed at para 138: Orphans and unwanted and illegitimate children are a very vulnerable group. Many fail to realise their potential through loss of firm ties of affection, lack of stimulation and absence of suitable adults to provide a feeling of security and to meet their emotional and psychological needs. Legal adoption, where it is possible, is undoubtedly the most satisfactory method of dealing with the problem....family care is preferable to care in an institution.... We are well aware of the wonderful work carried out in these institutions and our regret is that because of a lack of appreciation of the psychological and emotional needs of children or because of inadequate staffing, the best results are not always achieved.

In September 1962 an Interdepartmental Committee was established to inquire into possible approaches to the prevention of crime and the treatment of offenders. The Committee was composed of senior officials of the Departments of Justice, Health, Education and Industry and Commerce. Its proceedings concerning Fr Moore’s views on Artane are discussed in the chapter on that institution (Volume I, Chapter 7).

The Committee’s more general recommendations as to Industrial and Reformatory Schools anticipated those of Kennedy in some respects and echoed Cussen in others. One of its central recommendations was the introduction of proper aftercare supervision, the lack of which they viewed as ‘a most grievous fault in the system’.

The Tuairim Report of 1966 was another harbinger of change and bookmarked a change in thinking within the Department. Tuairim was a private group interested in publishing ideas for practical, social or governmental reform. One of its best-known reports entitled ‘Some of our children’ evaluated the certified schools system in Ireland. In some ways its content also anticipated that of the Kennedy Report. The Tuairim Report drew attention to the ‘failure to implement, other than a few’, the recommendations of the Cussen Commission. The Department of Education concurred with a number of Tuairim’s findings and stated in an internal memo ‘it is true that the whole system is in need of complete overhaul’.

On 30th January 1961 a play by Richard Johnson, The Evidence I Shall Give, was premiered at the Abbey Theatre. It ran for 42 performances, and then was restaged in July of that year when it ran for a further nine. It returned in August for 21 more, in September for nine, and finally in October for six. Such a run, with a total of 87 performances, was most unusual.

The author was a District Court judge. The play depicted a day in the life of a District Justice and the principal case was an application to have a 13-year-old female inmate of an orphanage transferred to an Industrial School because her alleged disobedience made discipline impossible. The protagonists were the defending solicitor, who was a kind and humane character, and who argued that ‘small children need kissing and caressing’ and the Mother Superior of the home, who was unloving and was driven by the need to enforce severe discipline and through it to bring the children ‘to humility’.

The children had been committed because their father could not afford to engage a woman to look after his six children. The solicitor then calculated that with the capitation fee of £2.10 s per week per child, the Order was being paid £390 for the three sisters, and the other institution was being paid £370 for the other three. ‘Will you agree’, he asked the mother-general, ‘that for £150 a year he could have got somebody to look after all six?’