Chapter 2 — Finance

Department of Education’s attitude to level of funding

The Department of Education, in its detailed submissions to the Committee, accepted that the schools were badly funded by the State. The Department’s position down through the years was generally sympathetic to the pleas of the institutions through the Resident Managers’ Association for increases in the capitation grant. The situation in the 1960s brought matters to a head. Numbers were falling dramatically and with that income was dropping.

An internal Departmental memorandum dated 5th June 1963 outlined the situation: The pressure for an increase in grants arises mainly from the falling numbers and chiefly from the senior boys schools. In all the convent schools I have visited it appears that they would be quite satisfied with the rate of grant provided that the schools were kept nearly full, but many of the schools are less than half full. With many of their overheads fixed the institutions would be uneconomic but in many of the convent industrial schools the deficit is obviously met by the surpluses on national and post-primary schools run in conjunction with the industrial schools, the whole being run as one institution. None of the senior boys schools has any other grant-winning institution attached and they find themselves therefore unable to compensate for the falling numbers and increased grants are therefore necessary in their cases.

This same memo pointed out that ‘the element if any for the maintenance and improvement of buildings was too small’. The buildings were old and in need of repair and modernisation, and the Department had begun to pay a contribution to help the Orders carry out necessary work.

The dwindling funds caused by falling numbers worsened because of the failure to rationalise the system and close most of the schools as was suggested as early as 1955 by the Department of Finance. A letter dated December 1964 to the Department of Finance backed the Resident Managers and asked for more funds rather than school closures: We are satisfied that the present grants are insufficient to meet the current expenditure of the schools and very many of them, if not the vast majority, can subsist only by meeting the continuing deficits from income from other activities of the communities or by charitable donations or by accumulating debt, the last mentioned occurring even in schools conducted by nuns who are noted for prudent management. Further expenditure in the schools is confined to bare necessities as their incomes will not allow of any of the many improvements deemed necessary by this Department... It should also be borne in mind that the school premises have all been provided free of cost to the State and in the matter of structural improvements or repairs they qualify for State aid on the day-school portion of the premises only. It had been claimed in the past that the capitation grants contained some unspecified element in respect of buildings maintenance but such, in fact, was not the case. These institutions have been treated so parsimoniously by the State that there is now grave danger that the goodwill of the religious orders concerned will be lost and it is unnecessary to indicate the enormous extra cost which will be involved were they to give up the work and be replaced by lay staff.

The letter ended: In all these circumstances the Minister is satisfied that an increase of £1 a week in the capitation is less than that warranted but is the minimum that can reasonably be offered and it is suggested that the entire cost, estimated not to exceed £155,000 should be borne on the exchequer.

In the period 1961-62 to 1967-68, there was a decrease by 12% in the overall funding of Industrial Schools from £436,278 to £385,812 but the fall in committals was 45.65 %. Funding on Reformatory Schools for the same seven-year period increased 16% from £25,975 to £30,144 with a 19% drop in committals from 177 to 144.

By contrast the two-year period from 1968-69 to 1969-70 was a period of uncharacteristic generosity. The combined figures for the Industrial and Reformatory Schools show an increase of 28%, funding rising from £411,059 to £527,7731. Even so, the Kennedy Report in 1971 found the schools under-funded.

Adequacy of funding

The funding of Industrial Schools and Reformatories was raised in most of the submissions from Congregations.

In the Opening Submission to the Artane module, the Christian Brothers stated : The level of grant aid was a constant topic of discussion between the Resident Managers Association and the Department of Education, the former continually insisting that the grants paid were seriously inadequate.

The Congregation went on: The validity of the position held by the Resident Managers is strongly supported by the findings of the Kennedy Committee and by comparison with the levels of grant paid to similar institutions (Approved Schools) in neighbouring jurisdictions.

The Submission then went on to compare the cost to the State of a residential school in Northern Ireland with Artane and concluded that when salaries and other costs were taken into account, the school in Northern Ireland was in receipt of considerably more funding than its counterpart in the South. In particular, the Congregation compared the stipend paid to all the Brothers in Artane with salaries paid in Northern Ireland and found the southern payment to be considerably less.

Artane was a large well-appointed institution with many advantages including a large and productive farm. Letterfrack, on the other hand, was a considerably smaller institution and although it had a very large farm (amounting to some 827 acres), it was not good farming land and was very labour-intensive.

In the opening statement to the Letterfrack module, the Christian Brothers addressed the issue of funding and again made comparisons with Northern Ireland in order to ground a contention that funding was inadequate. The submission stated that Letterfrack was only able to survive because of the produce of the farm, which provided food for the school and also generated some additional income.

No special case of under-funding was made for Letterfrack although the much smaller numbers, particularly after 1954, were a cause of considerable hardship to the boys there.

The submission for Tralee adopted a more instructive approach. Although it did make comparisons with UK residential schools, it also set out wages paid to workers in the school for 1945, 1952 and 1962 and compared the stipend paid to all Brothers in the school with those wages. This is explored in more detail below.