The need for reform is more urgent and, in many respects, better defined in the system of Secondary than in that of Primary Education in Ireland. But the two ought to be closely interconnected, and in discussing one at least of the more important changes which it is desirable to introduce, the National Schools have as good a claim to be heard in the matter as their elder brethren.
Since 1900 great efforts have been made by the Intermediate Board to promote the interests of Secondary Schools and to supply the educational needs of those who want to equip themselves for the struggle of life in its various departments. In 1900, the Board of Intermediate Education was empowered to appoint inspectors, but it was not until quite recently, after many fruitless applications and under a threat of resignation by the Board, that inspection was placed on a business-like footing and a permanent staff of six inspectors appointed. But this, after all, is a comparative detail, and reform will have to strike deep indeed if the secondary schools in Ireland are to take their place as a living part of a living body.
The question of reform may be dealt with under three principal heads: (1) the abolition of the examination tests, (2) the inter-relationship between the Primary and Secondary systems, and (3) the position of teachers. Although there are other matters which will be briefly referred to, these are the three cardinal difficulties that beset the Intermediate Board to-day and obstruct the most public-spirited efforts to convert the Irish educational system into one organic whole.
(1) Although the mischievous principle of fees by results has disappeared for ever from the National Schools, it still clings to Intermediate Education, numbing and constricting, like some remorseless ivy limb, the growth and free exercise of the central stem and its branches, and preventing the natural sap from rising and vitalising the whole. It is not as though the rest of the world had set the seal of its approval upon this kind of examination. The contrary is the fact. Almost every country in the world has rejected this system as wholly pernicious, injurious for the pupil, demoralising for the teacher, and wasteful for the State. To regard the youth of the Secondary Schools merely as the geese that lay the golden eggs when the examinations occur, is to destroy the true aims of education and pervert the principle of rational development. In fact, payments to Intermediate Schools ought to depend largely on the results of inspection, and much less on written examinations, a change which would involve the appointment of a larger number of inspectors than at present exist. It is all-important that this alteration should be undertaken without delay. The mechanical agglomeration of lifeless snippets of information which characterises the present method is an absurd and antiquated remnant of the bad old times, and the sooner this part of the system is hewn down the better it will be for the conscientious discharge of the teacher's duties and the self-respect of all concerned.
(2) As for any proper official relationship between the Primary and Secondary systems, it may be said as yet to be practically non-existent. That co-ordination of the two is essential—nay, vital—if Irish education is to be placed on a sound footing, may be appreciated from the fact that a large proportion, or 57 per cent, of the membership of Intermediate Schools is recruited from the schools of the National Board. There seem to be only two ways in which this co-ordination can be satisfactorily effected. Either the pupils must transfer from the National to the Secondary Schools at an age when they will be young enough to profit by Secondary instruction, or some sort of higher instruction must be given in the National Schools so as to fit the children, when they leave the latter at rather a later age, for the curriculum awaiting them in the Secondary system. It is the Treasury at the present moment, and the Treasury alone, that blocks the way to this reform. Since 1902 it has been asked to sanction the establishment of higher grade schools in large centres; the National Board also has repeatedly pleaded for the institution of a "higher top," or advanced departments, in connection with selected Primary Schools in rural districts. But all these requests, founded though they have been on intimate knowledge of the requirements of Irish Education and a ripe experience ranging over many years, have been brushed aside by the officials at the Exchequer, although the cost would be only about £25,000 a year, on the very insufficient ground that the Development Grant has been depleted to defray the loss of flotation of stock for the purposes of land purchase. What, in the name of common sense, has land purchase to do with education? What indissoluble relationship is there between the two that the expenditure upon the one should be made dependent upon the requirements of the other? This niggardly and short-sighted attitude is hardly worthy of one of the richest countries in the world. It is but a matter of a few thousands, and surely the efficient training of the youth of Ireland is quite as important as buying out the Irish landlords and placing the Irish tenant in possession of the soil. The result of the present want of co-ordination is that the clever pupil is now kept far too long in the lower school. There he remains, kicking his heels until he is sent up to the Intermediate School at 15 or 16—much too late an age at which to begin the study of languages. The Primary teachers are, of course, only too pleased to retain the clever boys as long as possible in the National Schools, but it is unfair to the children, and is robbing the community of services which might be rendered to it by these pupils in the future if fair opportunities were afforded them of training themselves while there was yet time. Without higher grade schools, without scholarships, without at least some system of a "higher top" in connection with the Primary Schools, there can never be proper co-ordination of administration, and education in Ireland will never be able to progress beyond a certain point. The Christian Brothers have set the Treasury a good example in this matter. In their schools there is close co-ordination of primary and intermediate education. Promising boys in the fifth standard are removed when they are 11 or 12 years of age into the higher schools and thus given an opportunity, at the most receptive period of their lives, of acquiring knowledge which they will be able to turn to good account in after life. Over and over again has the National Board attempted to persuade the Treasury to adopt a similar system, but hitherto without avail. The crust of the official mind has been impervious to every appeal. There seems, indeed, to be now some chance of the establishment of scholarships for pupils in primary schools, but unless an intelligent mind is brought to bear upon it, and the scholarships limited, as in England and Scotland, to pupils under 12 or 13 years of age, the same unfortunate result will follow, as in the case of the Society for Promoting Protestant Schools and other similar bodies, where the scholarships have turned out to be a practical failure. An exception, however, as suggested by Dr. Starkie, and as allowed in Scotland, might be made in favour of the best Primary Schools. That is to say, where satisfactory Secondary teaching is given at a Primary School, the pupil might be relieved of one or two of the three years he is obliged to spend in the Secondary School before he can compete for the Intermediate Certificate which is awarded at 15 years of age.
The argument is sometimes used that the establishment of higher grade schools would lead to unfair competition with the Intermediate Schools already in existence. No one desires to do this. Where the Intermediate Schools already hold the field, such overlapping can easily be avoided by proper administrative co-ordination between the National and Secondary systems. Where, on the other hand, there is a dearth of Intermediate Schools, as in Connaught and Kerry, higher grade schools can, and should be established without any risk either of overlapping or competition. They would supply a want which is deplored by all educational reformers, and make their influence felt far outside the mere circle of the schoolroom. A private commercial school has already been founded in Kerry and has continued for some time without State help, but, through want of encouragement, it has recently been compelled to adopt the programme of the Intermediate Board, which is entirely unsuited to its particular aims. Surely, private enterprise of this kind ought not only to be welcomed, but stimulated by a State grant, and everything possible done to encourage schools to develop along their own lines. At the present moment, they are bound hand and foot by the examination rules of the Intermediate Board, and it is quite impossible for any central authority, however eagle-eyed and sympathetic, to appreciate the peculiar atmosphere and wants of every locality. In such cases, local initiative is far more valuable than red tape, and more likely to result in an intelligent interest in his pupils and subject on the part of the teacher.
(3) The position of the Secondary teachers, especially of lay assistant teachers, cries aloud for reform. In fact, their case is an acknowledged scandal. How can any one expect that the training of the youth in the Secondary Schools can be really satisfactory when the teachers are so miserably underpaid, when the elements of self-respect are given no room in which to develop, and the whole profession are treated rather as beasts of burden than as a noble and responsible body to whom is entrusted much of the destiny of the race? The question of reform is here largely a question of money. There are signs that this fact is becoming more appreciated as the years go by, and it is devoutly to be hoped that before long the teaching profession in the Secondary Schools will have no more to complain of than the Primary teachers, or than is usual in even the most cared-for and prosperous professions in this our imperfect world. Salaries, pensions, a register, security of tenure, opportunities of proper training—these may be said to embody the chief requirements of Secondary teachers at the present moment. In existing circumstances there is no attraction for competent men and women to enter the teaching profession so far as Intermediate education is concerned. The most incompetent crowd into it, although there are many exceptions, and teaching is regarded as a stop-gap during periods of impecuniosity rather than as a permanent career to be proud of and to be worked for. The salaries are beggarly—considerably lower than the incomes of the teachers in the Primary Schools. In 1908, the average salaries of principals in the Primary Schools were £112 for men and £90 for women, and in the County Boroughs £163 and £126 respectively, whilst in the Secondary Schools lay assistants were paid about £80 per annum. In view of this, surely the demand that is being made on behalf of highly qualified Secondary teachers is not exorbitant, namely, salaries of £100 to £300 for men and of £80 to £220 for women. If the maximum rate were £150 for men and £100 for women the cost would be £220,000 a year. Where is the money to come from? Will a Nationalist Parliament be prepared to find it, and if so, from what source? Ireland is a comparatively poor country and is not in a position to bear much more taxation. The Intermediate Board, with its present resources, cannot afford to step into the breach, and the only solution seems to be that the British Exchequer should come to the rescue and that the Board should be granted the means of dealing with this all-important matter, the neglect of which is having a most injurious effect upon the efficiency of the Intermediate Schools. It has been suggested that a half-way house might be found, that the Treasury should grant £60 for each assistant master and £40 for each assistant mistress, and that the remainder should be raised by the authorities of the schools under the direction of the Board. This alternative scheme would cost the State about £88,300 a year, but, like all makeshifts, would not effect a real settlement of the difficulty, creating, as it would, a patchwork system of payment which might break down at any moment. On the other hand, let the settlement be a generous one, and the return will be a hundredfold in added efficiency, a higher sense of duty, and an increased personal interest on the part of the teacher in the class of which he has charge.
In close connection with the question of salaries are those of pensions and security of tenure. The pensions of the Primary teachers, inadequate though they be, would be looked upon as a provision of the most munificent kind by the poor men and women who enter service under the Intermediate system. The Primary teachers, moreover, can fall back upon subsidiary occupations if they find that their salaries are insufficient for their maintenance. They can run a little farm or keep a shop or do other remunerative work, but the assistants in Secondary Schools are debarred from these methods of supplementing their exiguous wage. Those terrible words might, without any extravagance, be inscribed for them over the doors of their schools: "All hope abandon ye who enter here." Something must be done. A starvation wage, with an adequate pension to follow, might be tolerable, a decent wage, without any pension, might be borne, but starvation at both ends is a disgrace to the Treasury while it lasts and one of the things which should be taken in hand without any further delay.
Security of tenure is equally important. How can a teacher be expected to devote the whole of his mental energies to his scholastic duties, how can any one expect him to throw himself heart and soul into his work, if there is always lurking in his mind the haunting fear of dismissal through no fault of his own? It is unreasonable to suppose that any human being can give of his best under these distracting conditions. In the National Schools a system of appeal has been in force for some time, and has been carried out with fairness on the part of those in authority and to the apparent satisfaction of the teaching profession. The dismissal order of every Roman Catholic manager has to be countersigned by the Bishop of the Diocese, and in the case of all teachers an appeal is now allowed to the Board itself, and is often utilised by Protestants. In fact, so far as the National Schools are concerned, the tenure of the Primary teachers during good behaviour is practically secured. Why cannot similar safeguards be introduced into the Intermediate system? An appeal to the Board in this case is not proposed by those who know all the circumstances best; but teachers in Roman Catholic schools might have the right of appeal, in the case of Diocesan Colleges, to the Bishop of the Diocese, or in the case of schools under religious orders to the Provincials or Generals, and Protestant teachers might be allowed to appeal to the Board of Governors of their schools, or they might sign an agreement, providing for a referee, such as the No. 3 and 4 agreements under the National Board.
A register of teachers is also required. Every existing teacher in the Intermediate Schools who satisfies the tests of efficiency should be placed upon it without delay. As far as future appointments are concerned, qualifications might be adopted similar to those which now obtain in the Scotch Department, e.g. (a) a degree in a University, or its equivalent; (b) a diploma following professional training for one year; and (c) two probationary years in a good school. Special terms would probably be demanded for those who, like Nuns, are precluded by their calling from attending lectures at a University.