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THE CIVIL SERVICE, the STATE and the IRISH REVOLUTION, 1886-1938. Martin Maguire. Supervisor

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THE CIVIL SERVICE, the STATE and the IRISH REVOLUTION, 1886-1938. Martin Maguire. Supervisor THE CIVIL SERVICE, THE STATE AND THE IRISH REVOLUTION, 1886-1938. Martin Maguire. Supervisor: Professor Eunan O’Halpin. Head of Department: Professor Jane H. Ohlmeyer Submitted in fulfilment of the requirements of the Ph.D. degree of the University of Dublin, Trinity College. (2005) Declaration. This thesis has not been submitted previously as an exercise for a degree at University of Dublin, Trinity College or any other University and is entirely my own work. I agree that the library of the University of Dublin, Trinity College may lend or copy the thesis upon request. Signed: Martin Maguire. SUMMARY. The thesis is about the relationship between the Irish civil service and the state in the long period of Irish state-formation. It offers an analysis of the Irish revolution as a state-centred rather than the more usual nation-centred event, by focussing on the civil service experience of that revolution. The Irish civil service is examined in the context of changes in the state that began with the first home rule bill and culminated in the partitioning of the existing state and the creation of an independent Irish Free State and a devolved administration of Northern Ireland. In Great Britain reform of the civil service was seen as part of a broader reform of the state, which was expected to deliver a smaller and less costly service. In Ireland much more was expected of civil service reform; to make the British state popular and respected for the good it did. This led to a tendency for the civil service to expand in Ireland and become more complex. Dublin Castle became a byword for a bloated, unaccountable and bureaucratic administrative apparatus. Home rule, in so far as it applied to the Irish civil service, implied that an Irish government would adopt the British view that the civil service ought to be reduced in cost and numbers. Before the advent of home rule the Irish civil service had organised on the usual issues of pay and conditions. Its main demand, parity with London rates of pay, was implicitly unionist. The policy of home rule necessitated a realisation that the Irish civil service, despite being part of the United Kingdom service, was different and dispensable. Organisation became more unified and directed toward securing the greatest security for the civil service in the further home rule proposals. In pursuit of this objective the civil service adopted techniques of political lobbying that would ordinarily have been unacceptable in a civil servant. The result was the civil service clauses of the Government of Ireland Act, 1920, which were largely shaped in response to their campaigns. Whilst maintaining its own specific organisation, the Irish civil service also participated in the wave of organisation that swept through the British service in the years of World War 1 and after. The leadership of the Irish civil service drew from the campaign on home rule and from the British-led surge of civil service trade unionism but was also influenced by the transformation of Irish nationalism through the cultural movement and the Rising of Easter 1916. This led to a complex response by the civil service to the years of revolution and partition. It is argued that in the claim by Dáil Éireann to legitimate statehood, success was due to the failure of the British state rather than to any action by the republican state itself. The thesis examines the relationship between the state and the civil service in Northern Ireland, but concentrates on that relationship in the Irish Free State. The accepted view that the Free State simply inherited, intact and unchanged, the civil service of the former regime is refuted. A largely new civil service, organised on new lines, had to forge a new relationship with a government that regarded it with great suspicion. This led eventually to a court case that defined that relationship in constitutional terms and coincidentally led to the revision of the Treaty. Finally, under the Fianna Fail government, the civil service secured the position within the state which accorded with its own view of its role; as technocratic leaders in social transformation. The thesis utilises the records of the British and the Irish states, including the revolutionary Dáil Éireann state, the records generated by civil service organisations and early trade unions, and the personal papers of the key political and civil service figures. These records are preserved in archives, libraries and personal collections in Ireland, Northern Ireland and in England. Acknowledgements. This research has been shaped through discussion with my supervisor Professor Eunan O’Halpin and with my colleagues in the Contemporary Irish History seminar at Trinity College Dublin, my first debt of gratitude is to them. I would like to record my thanks to the librarians and archivists in the National Archives Ireland, especially Tom Quinlan and Mary Markey who gave me access to unlisted early establishment files of the Department of Finance; the staff of the National Library Ireland in both the reading room and the manuscripts room; of Trinity College Library; Séamus Helferty and the staff of the University College Dublin Archives Department; Theresa Moriarity of the Irish Labour History Library and Archive; Barry Lyons, archivist of the Grand Lodge of the Free and Accepted Masons of Ireland; Christine Woodland in the Modern Records Centre of the University of Warwick; the National Archives of the United Kingdom at Kew; the British Library newspaper collection at Colindale; the Bodleian Library at Oxford; the archivist of the Wiltshire and Swindon Records Office and the staff of the Public Records Office Northern Ireland. I would also wish to thank Mr James McGuire for facilitating access to the database under preparation for the Royal Irish Academy Dictionary of Irish Biography. Sources in private collections for which I record my thanks for access are; to the records of the Civil Service Clerical Association held by the Civil and Public Services Union, Adelaide Road, Dublin 2, made accessible by Mary Murphy; the records of the Institute of professional Civil Servants (Ireland) in IMPACT Union, Nerney’s Court, Dublin 1, made accessible by Shay Cody; the records of the Customs and Excise Federation held by the Public Services Executive Union, Merrion Square, Dublin 2 and the memoir of Michael Gallagher in the hands of his son Fr Colm Gallagher, Arklow, Co. Wicklow. Individuals who have offered critical responses to the work and to whom I offer my thanks are Professor David Fitzpatrick of TCD and Dr Deirdre McMahon of Mary Immaculate College, University of Limerick. I would like to record my gratitude to Dr Tom Collins, Director of Dundalk Institute of Technology, Peter Fuller, Head of School of Business and my colleagues in the Department of Humanities for their support and encouragement. This research was funded by an Irish Research Council for the Humanities and Social Sciences (IRCHSS) Senior Research Scholarship. I would like to record my thanks to the IRCHSS and to the panel of assessors for the award, without which, the research would not have been possible. My final and most profound debt of gratitude is to Celia and it is to her and to Nora and Betty that the work is dedicated. ABBREVIATIONS. ACA Assistant Clerks’ Association. AEO Association of Executive Officers. APOWC Association of post Office Women Clerks. ASCOCS Association of Staff Clerks and Other Civil Servants. CDB Congested Districts Board. CEA Customs and Excise Association. COA Clerical Officers’ Association. CSA Civil Service Alliance. CSC Civil Service Confederation. CSCA Civil Service Clerical Association. CSCU Civil Service Clerical Union. CSF Civil Service Federation. CSO Chief Secretary’s Office. CSRC Civil Service Representative Council. DATI Department of Agriculture and Technical Instruction. DELG Dáil Éireann Local Government department. DMOA Dublin Municipal Officers’ Association. GCICS General Committee of Irish Civil Servants. GSI Geological Service Ireland. HLRO House of Lords Record Office. IAPOC Irish Association of Post Office Clerks. ILC Irish Land Commission ILGOU Irish Local Government Officers’ Trade Union. ILPTUC Irish Labour Party and Trade Union Congress. IPCA Irish Postal Clerks’ Association. IPCS Institute of Professional Civil Servants (Ireland). IPOEU Irish Post Office Engineers’ Union. IPU Irish Postal Union. ITCA Irish Temporary Clerks’ Association. LGB Local Government Board. MRC Modern Records Centre, Warwick University. NAI National Archives Ireland. NAUK National Archives United Kingdom. NEB National Education Board. NHIC National Health Insurance Commission. NPGCA Non-Permanent Government Clerks’ Association. POCA Post Office Clerks’ Association. POWU Post Office Workers’ Union. RGO Register General’s Office. SCS Society of Civil Servants. TOPA Transferred Officers’ Protection Association. UCDAD University College Dublin Archives Department. UPW Union of Post Office Workers. WSRO Wiltshire & Swindon Record Office. Note: Nationalist and Unionist is used to denote members of political parties, nationalist and unionist is used to denote supporters and sympathisers. Contents. Page. Acknowledgements. i Abbreviations. iii Introduction. 1 1. Gladstonian Home Rule and the Civil Service. 7 2. ‘A Written Constitution’: Home Rule 1912-14. 36 3. War, Rebellion and the Civil Service, 1914-18. 62 4. Civil Service Organisation 1918-1920. 99 5. Treasury (Ireland) 1920-21. 136 6. The Revolutionary State: 1919-1922. 170 7. Partition and the Civil Service.
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