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The Civil Service and the Revolution in Ireland, 1912–38

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The Civil Service and the Revolution in Ireland, 1912–38 M1206 MAGUIRE PRELIMS.qxp:Andy Q7 7/12/07 11:40 Page i The civil service and the revolution in Ireland, 1912–38 M1206 MAGUIRE PRELIMS.qxp:Andy Q7 7/12/07 11:40 Page ii M1206 MAGUIRE PRELIMS.qxp:Andy Q7 7/12/07 11:40 Page iii The civil service and the revolution in Ireland, 1912–38 ‘Shaking the blood-stained hand of Mr Collins’ Martin Maguire Manchester University Press Manchester and New York Distributed exclusively in the USA by Palgrave M1206 MAGUIRE PRELIMS.qxp:Andy Q7 7/12/07 11:40 Page iv Copyright © Martin Maguire 2008 The right of Martin Maguire to be identified as the author of this work has been asserted by him in accordance with the Copyright, Designs and Patents Act 1988. Published by Manchester University Press Oxford Road, Manchester M13 9NR, UK and Room 400, 175 Fifth Avenue, New York, NY 10010, USA www.manchesteruniversitypress.co.uk Distributed exclusively in the USA by Palgrave, 175 Fifth Avenue, New York, NY 10010, USA Distributed exclusively in Canada by UBC Press, University of British Columbia, 2029 West Mall, Vancouver, BC, Canada V6T 1Z2 British Library Cataloguing-in-Publication Data A catalogue record for this book is available from the British Library Library of Congress Cataloging-in-Publication Data applied for ISBN 978 0 7190 7740 1 hardback First published 2008 17 16 15 14 13 12 11 10 09 08 10 9 8 7 6 5 4 3 2 1 Typeset in Minion 10.5/12.5pt by Servis Filmsetting Ltd, Manchester Printed in Great Britain by ??????. M1206 MAGUIRE PRELIMS.qxp:Andy Q7 7/12/07 11:40 Page v Contents Acknowledgements page vii Abbreviations ix Introduction 1 1. The civil service and the State in Ireland, 1912–18 8 2. Dublin Castle in crisis, 1918–21 51 3. The revolutionary State, partition and the civil service, 1920–21 93 4. The Provisional Government and the civil service, 1922 122 5. Cumann na nGaedheal and the civil service, 1923–32 170 6. Fianna Fáil and the civil service, 1932–38 201 Conclusion: the civil service, the State and the Irish revolution 225 Appendix 230 Bibliography 237 Index 249 M1206 MAGUIRE PRELIMS.qxp:Andy Q7 7/12/07 11:40 Page vi M1206 MAGUIRE PRELIMS.qxp:Andy Q7 7/12/07 11:40 Page vii Acknowledgements This book and the original Ph.D. thesis on which it is based have 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 archivists of the National Archives Ireland, especially Tom Quinlan and Mary Markey; 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 Archive and Museum; Christine Woodland in the Modern Records Centre at the University of Warwick; the staff at National Archives in London; the British Library; the Bodleian Library at Oxford; the Wiltshire and Swindon Record Office and the Public Record 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. For granting access to sources in private collections I record my thanks to Mary Murphy for the records of the Civil Service Clerical Association held by the Civil and Public Services Union; to Shay Cody for the records of the Institution of Professional Civil Servants, held by IMPACT Union; to Dan Murphy for the records of the Customs and Excise Federation held by the Public Services Executive Union; and for access to the memoir of Michael Gallagher I thank 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 Michael Laffan, Professor W.E. Vaughan, Professor David Fitzpatrick, Dr Deirdre McMahon and Dr Daithí Ó’Corráin. I would like to record my gratitude to the management of Dundalk Institute of Technology and especially to all my colleagues in the Department of Humanities for their support and encouragement. My thanks also the editorial staff at Manchester University Press for their guidance in seeing the book to print. M1206 MAGUIRE PRELIMS.qxp:Andy Q7 7/12/07 11:40 Page viii viii Acknowledgements 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 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. M1206 MAGUIRE PRELIMS.qxp:Andy Q7 7/12/07 11:40 Page ix Abbreviations ACAAssistant Clerks’ Association AEO Association of Executive Officers ASCOCS Association of Staff Clerks and Other Civil Servants CDB Congested Districts Board CEA Customs and Excise Association COA Clerical Officers’ Association CPSU Civil and Public Services Union CSA Civil Service Alliance CSCA Civil Service Clerical Association CSF Civil Service Federation CSO Chief Secretary’s Office CSRC Civil Service Representative Council DATI Department of Agriculture and Technical Instruction DMOA Dublin Municipal Officers’ Association DMP Dublin Metropolitan Police GAA Gaelic Athletic Association GCICS General Committee of Irish Civil Servants GVO General Valuation Office HLRO House of Lords Record Office ILC Irish Land Commission ILGOU Irish Local Government Officers’ Trade Union ILPTUC Irish Labour Party and Trade Union Congress IPCS Institute of Professional Civil Servants (Ireland) IRB Irish Revolutionary Brotherhood LGB Local Government Board NA National Archives, London NAI National Archives Ireland NEB National Education Board NHIC National Health Insurance Commission NLI National Library of Ireland OPW Office of Public Works M1206 MAGUIRE PRELIMS.qxp:Andy Q7 7/12/07 11:40 Page x POCA Post Office Clerks’ Association POWU Post Office Workers’ Union PRONI Public Record Office Northern Ireland RIC Royal Irish Constabulary TCDTrinity College Dublin TD Teachta Dála TOPA Transferred Officers’ Protection Association UCDAD University College Dublin Archives Department UVF Ulster Volunteer Force WSRO Wiltshire and Swindon Record Office WUMRC Warwick University Modern Records Centre Note: Nationalist and Unionist is used to denote members of political parties, nationalist and unionist is used to denote supporters and sympathisers. M1206 MAGUIRE TEXT.qxp:Andy Q7 12/12/07 11:09 Page 1 Introduction research into two contradictory accounts of the Tprocess by which an Irish State replaced the British State in Ireland. On the one hand there is Kevin O’Higgins, a minister in the Provisional Government, describing Ireland in 1922 thus: there was no State and no organized forces. The Provisional Government was simply eight young men in the City Hall standing amidst the ruins of one admin- istration with the foundations of another not yet laid, and with wild men scream- ing through the keyhole. No police force was functioning through the country, no system of justice was operating, the wheels of administration hung idle battered out of recognition by the clash of rival jurisdictions.1 On the other hand there is the magisterial calm of Joseph Brennan, who had been a senior civil servant in Dublin at the handover. In 1936, in remembering the transfer of power, he wrote: The passing of the State services into the control of a native Government, however revolutionary it may have been as a step in the political development of the nation, entailed, broadly speaking, no immediate disturbance of any fundamen- tal kind in the daily work of the average Civil Servant. Under changed masters the main tasks of administration continued to be performed by the same staffs on the same general line of organisation and procedure.2 O’Higgins described a failed State collapsing into ruin. Brennan, on the other hand, described a smoothly running State machine handed over intact into new hands. Can both these contradictory accounts be both correct and accu- rate? Which is closer to the truth? Traditional nationalist interpretations of the process of State-building tended toward the O’Higgins view of smoking ruins and revolutionary violence. The modern Irish State emerged out of revolution and State-building in indepen - dent Ireland was from the ground up, starting anew. Depending on how the Treaty is interpreted this process is seen as being either ultimately successful or ultimately thwarted. Revisionist interpretations of the process give considerable M1206 MAGUIRE TEXT.qxp:Andy Q7 12/12/07 11:09 Page 2 2 The civil service and the revolution in Ireland significance to the Brennan view of essential continuity. According to this view the independent State ensured its stability by abandoning the chimera of revo- lution and merely assuming control of the levers of power of the existing regime. Thus it is argued that what happened was hardly in fact a revolution at all, merely the transfer of the existing State from one political authority to another; very much a case of business as usual. This book sets out to answer these questions of revolution or continuity through a close examination of the role and fate of the civil service in the process of State-building. It questions whether the new government did simply retain the same civil service, given that every other institution of the British State in Ireland was abolished – parliament, executive, judiciary, police and the military. If that was the case, as many historians argue, then why did the new Irish government readily accept what was described as an anti-Irish, extrava- gant, corrupt and rundown apparatus? Had the civil service that was con- demned in May 1920 as unworkable been successfully rebuilt into a modern and efficient machine in a mere eighteen months? That transformation would in itself be remarkable.
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