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Caring for Migrants : Policy Responses to Irish Migration

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Caring for Migrants : Policy Responses to Irish Migration University of Warwick institutional repository: http://go.warwick.ac.uk/wrap A Thesis Submitted for the Degree of PhD at the University of Warwick http://go.warwick.ac.uk/wrap/56276 This thesis is made available online and is protected by original copyright. Please scroll down to view the document itself. Please refer to the repository record for this item for information to help you to cite it. Our policy information is available from the repository home page. Caring for Migrants: Policy Responses to Irish Migration to England, 1940-1972 Henrietta Ewart A thesis submitted in partial fulfilment of the requirements for the degree of Doctor of Philosophy in History University of Warwick, Department of History November 2012 CONTENTS Acknowledgements v Declaration vi Abstract vii Abbreviations viii Introduction 1 Literature review 3 Objective of present study 21 Research questions 24 Sources 26 Methods 28 Overview 30 Chapter 1: ‘Catering for our emigrants’ - the 38 Irish Catholic church’s responses to evolving emigrant need, 1940-1972 Introduction 38 Background 39 Impact of World War II 45 Reviewing policy to meet post-war needs 64 Building an administrative framework, 69 1953-1957 Conclusion 88 Chapter 2: ‘We are sent to the Irish’ – 89 encouraging religious belief and practice, 1955- 1972 Introduction 89 Missions 90 The Legion of Mary 93 The Chaplaincies 96 Developing policy from the parish level: 109 Eamon Casey Conclusion 124 Chapter 3: ‘We are one community’ – the 129 English hierarchy’s response to Irish migration Introduction 129 English Bishops’ policy: Irish migration 130 and the English Catholic church in context The London Irish Centre 137 The Birmingham Irish Centre 151 Conclusion 164 Chapter 4: British and Irish government policy 169 on Irish Migrants, 1940-1972 Introduction 169 British government policy 171 Irish government policy 185 Conclusion 208 Chapter 5: Three perspectives on Irish migrant 216 needs- the wider policy arena Introduction 216 ii International Context to Post-War 217 Migration CSWB Report to the ICMC – Irish 220 migrants as the Irish hierarchy saw, and wished others to see, them NDS Report to the ICMC – Irish migrants 224 as English Catholics saw them Richard Hauser – Action Research for the 238 ‘Irish Problem’ – an independent, secular view Conclusion 247 Chapter 6: Protecting the honour of the 251 daughters of Eire – Welfare policy for Irish female migrants to England, 1940-1972 Introduction 251 Selly Oak Irish Girls’ Club – the first 257 Irish ‘welfare’ centre? Policy Development After World War II 264 Illegitimate pregnancy 269 ‘Regular attenders at Mass and beloved 284 by the patients they serve’ – Irish nurses in England Conclusion 287 Conclusion 291 Appendix 1: Policy Developments for Irish 309 iii Migrants - Key Events Bibliography 314 iv ACKNOWLEDGEMENTS I would like to thank the following for their contribution to this project: Bishop Eamon Casey and Mr A.E.C.W. Spencer for being so generous with their time and hospitality and for providing invaluable insight and information on several key areas covered by this study; Noelle Dowling, librarian at the Dublin Diocesan Archives, for her help in locating relevant material and, particularly, for allowing me access to the uncatalogued Legion of Mary papers; Reverend John Sharp, librarian at the Birmingham Archdiocesan Archives, and Father Nicholas Schofield, librarian at the Westminster Diocesan Archives, for their help in locating relevant material; my supervisor, Professor Maria Luddy, for her encouragement, advice and help in pointing me in the direction of a wealth of relevant secondary sources; Alan Wilson for his support and practical input throughout the project; and my three children for putting up with hearing far more about Irish migrant issues than they could ever have wanted to over the past five years. This study was funded by a post-graduate doctoral award from the Arts and Humanities Research Council and a bursary from the British Association for Irish Studies. v DECLARATION This thesis is the candidate’s own work and has not been submitted for a degree at another university. A version of chapter six has been accepted for publication in the Irish Studies Review (currently in press). vi ABSTRACT Large-scale interstate migration raises questions about where the responsibility for migrant welfare lies, whether with the sending state and its institutions, the receiving state or both. Across the middle decades of the twentieth century, around half a million people left Ireland, the majority for England. This study analyses the policy responses of governmental, Catholic church and voluntary organisations in both countries to Irish migrant welfare. Using records from Irish and English diocesan archives and the National Archives of Ireland and England the study identifies the policy claims that were made to church and state in the two countries and the responses that resulted. The majority of migrants were young, single and migrating alone. A distinctive feature was that, for much of the period covered, female migrants outnumbered males. The young age and gender of these migrants made moral welfare a major concern. The Irish Catholic hierarchy, led by the Archbishop of Dublin, Dr John Charles McQuaid, accepted responsibility for Irish migrant welfare and understood their needs through a discourse of ‘faith and morals’. This interpretation led to solutions designed to support religious faith and practice delivered by Catholic priests and lay volunteers. Both the Irish government and British institutions (state and voluntary) accepted the centrality of Catholicism to Irish identity and the right of the Catholic church to lead welfare policy and provision for Irish migrants. No alternative understanding of Irish migrant needs within a secular framework emerged during this period. This meant that whilst the Irish hierarchy developed policy responses based on their assessment of need, other agencies, notably the British and Irish governments, did not consider any specific policy response for Irish migrants to be required. vii ABBREVIATIONS BAA Birmingham Archdiocesan Archives CCCR Camden Committee for Community Relations CHAS Catholic Housing Aid Society CPRSI Catholic Protection and Rescue Society of Ireland CSSC Catholic Social Services Conference CSWB Catholic Social Welfare Bureau DDA Dublin Diocesan Archives FERES Federation of Catholic Institutes for Social and Socio-Religious Research IWIC Irish Welfare and Information Centre, Birmingham ICEM Intergovernmental Committee on European Migration ICMC International Catholic Migration Commission NAI National Archives, Ireland NDS Newman Demographic Survey NVA National Vigilance Association PICMME Provisional Intergovernmental Committee for the Movement of Migrants from Europe TNA The National Archives, Kew WDA Westminster Diocesan Archives YCW Young Christian Workers viii INTRODUCTION The ‘Irish habit of going away’ was noted as long ago as the ninth century, and its persistence has given rise to the belief that ‘migration seems to be one of [the] most ingrained [Irish] national instincts.’1 By the 1770s, population growth and pressure on economic resources led to the emergence of sustained emigration, largely to the United States but with significant numbers leaving for mainland Britain.2 The Great Famine of 1846-47 precipitated an acceleration in migration associated with continuing population decline which continued to the early 1960s.3 Net migration reached a peak of 60,000 per year in the decade 1881-1891, falling back to lower levels thereafter. In the period covered by this study (1940 to 1972), net annual average migration varied from a high of 41,000 in the years 1951 to 1961, to a low of 13,000 in the subsequent decade.4 Mid- twentieth century emigration was distinguished from the earlier phase in that mainland Britain was the primary destination. Between 1880 and 1921, 87 per cent of gross migration was to the United States, with only 10 per cent going to mainland Britain. This pattern reversed during the Great Depression and did not change subsequently.5 Although data on migratory outflows by destination is not available for most of the period covered by this study, estimates indicate that over the period 1940 to 1972, mainland Britain was the destination for over 80 per cent of Irish migrants.6 A particular feature of Irish migration was its gender distribution. For two periods covered by this study, female migrants 1 R C Geary, ‘Some reflections on Irish population questions’, Studies, An Irish Quarterly Review, 43 (1954), p.172. 2 John Archer Jackson, The Irish in Britain (London, 1963), p.3. 3 National Economic and Social Council, The Economic and Social Implications of Emigration (Dublin, 1991), p.47. 4 Ibid., p.53. 5 Ibid., p.60. 6 Ibid., pp.58, 60. outnumbered males. Between 1946 and 1951, 1,365 females emigrated for every 1,000 males. Between 1961 and 1971, the ratio was 1,157 females per 1,000 males.7 At the time of the 1971 census, among Irish born UK residents there were 92 men per 100 women, compared to 94 men per 100 women among those born in the UK. This feature of Irish migration marks it out from other migrant groups in which male migration was more usual. In 1971, there were 118 males per 100 females among Indian born UK residents and 258 males per 100 females among the Pakistani/Bangladeshi born groups. High rates of female migration were also seen among those born in the Caribbean, where the sex ratio was 100 females per 100 males.8 The high rates of females migrating from Ireland on their own account (rather than as wives or children) is explained by the wide disparities in the female labour market between Ireland and Britain, with more opportunities for female employment (particularly in nursing and domestic work) in the latter.9 Drivers for emigration included the poor development of the Irish economy, easy access to areas of greater economic development and an established tradition of migration.10 Economic modelling has demonstrated that the relative difference between the Irish and British labour markets was the major driver of migration between the two countries at any given time.
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