Attempt to introduce formal honours system founders on the rock of political disagreement

Documents released to The Irish Times under the Freedom of Information Act show that the Government had devised an honours system and made serious efforts to have it introduced.

Earlier this year officials at the Department of the Taoiseach were asked to prepare a discussion document setting out a model for an honours system, drawing on awards schemes in other countries. Unlike most other countries, which have some form of civic honours, Ireland has no State way of honouring the contributions of its citizens.

The discussion paper, Possible Honours Scheme, was examined by the Cabinet on September 21st. It acknowledges that our own history and background instinctively condition against an honours system: "The founders of the State were antipathetic to an honours system and were imbued with a strong egalitarian ethos," it says.

Moreover, any move to introduce formal honours would have to consider the prohibition on titles contained in the 1937 Constitution. Notwithstanding such philosophical opposition and constitutional doubts, the Government was supportive of such a system, and the Taoiseach wrote to the leaders of Fine Gael and Labour to seek cross-party support for the initiative.

The discussion document, prepared for the Government by officials in the Taoiseach's Office, observes that the Republic "lacks a suitable mechanism for honouring people who have rendered distinguished service to Ireland". A possible model for an honours system is set out in the paper.

The proposed system was based on the presentation of a gold medal and a scroll, as this would be "considered more suitable than one based upon conferral of a title of honour". This idea would neatly avoid any constitutional difficulties.

The awards would have been given out sufficiently sparingly to "guard against them being devalued". They would recognise exceptional service to mankind; outstanding achievement which confers international distinction on Ireland; and service to Ireland and the Irish people. No examples of the type of people or groups suitable for such honours are mentioned in the Government records released to The Irish Times.

The structure for the honours system would be "based on objective selection and evaluation and [would] operate transparently". An independent advisory board with 10 to 12 members, "representative of key sections of the community", would process names suggested as being deserving of honours.

The public would be allowed to propose names. The advisory board would send its recommendations for honours to the Government, which itself would "have an option of making some nominations". The President would confer the awards.

The discussion paper is less than clear on how to deal with concerns that the Government of the day would ultimately form a list comprising political cronies. The paper rejects any direct involvement by the President in the nomination process. Such a move would require a constitutional amendment.

Following the Cabinet meeting on September 21st the Taoiseach wrote to John Bruton and Ruairi Quinn on September 27th to establish whether there was support from the Opposition parties.

In his letter the Taoiseach said: "The two issues to be addressed are: (a) whether there is agreement on the need for such a scheme; and, if so (b), the type of scheme which would best suit Irish circumstances". The Government was obviously confident of a positive response, given that the discussion paper prepared for the Cabinet, and released to The Irish Times, noted that "there would appear at the present time to be political will to proceed with this matter".

The Opposition leaders accepted the Taoiseach's invitation to discuss the proposal. On November 11th the Government Chief Whip, Seamus Brennan, met Senator Maurice Manning of Fine Gael and Labour's Michael Ferris, who had been nominated by their respective parties to examine the proposal. It was to be the first of several meetings.

The Government's discussion paper was given to Senator Manning and Mr Ferris. To augment the debate, officials of the Department of the Taoiseach were asked to make presentations to the Opposition parliamentary parties.

The Taoiseach was keen that the matter should be addressed quickly, given the long delays experienced on previous occasions when an honours system had been discussed. Indeed, as early as 1930, the Cumann na nGaedheal government had considered establishing an "Order of the Legion of St Patrick", although the idea was never pursued.

HOWEVER, of all the parties in Leinster House, Fianna Fail would appear to be the most enthusiastic for an honours system. Bertie Ahern has followed the example set by four of his five predecessors as Fianna Fail Taoisigh in seeking to introduce an honours system for Irish citizens. (Jack Lynch is the only Fianna Fail leader not to have pursued such a scheme).

In January 1946 Eamon de Valera decided that an honours system should be examined "in light of the relevant provisions of the Constitution and of the practice in other countries". A draft memorandum was prepared, setting out the general provisions for a scheme whereby distinctions could be conferred on citizens by the president, on the advice of the government.

With the change of administration in 1948 it was left to the new Taoiseach, John A. Costello, to decide that, while the idea should not be abandoned, it was not a priority for his inter-party government.

Back in government in 1953, Fianna Fail ministers again discussed a revised version of the 1946 plan, but it was decided that the time was not yet opportune.

In 1959, Sean Lemass followed this line. However, by January 1963 he had changed his mind, and his Fianna Fail government approved, in principle, a proposal that a State Decoration of Honour be instituted.

Lemass wrote to the leaders of Fine Gael and Labour, seeking cross-party support for the idea. Labour wanted more information on how the scheme would work, but before discussions could get under way Fine Gael rejected the proposal.

And so the question remained off the agenda for almost 30 years. The three Fianna Fail leaders to hold the office of Taoiseach in the 1990s have each written to the leaders of Fine Gael and Labour seeking their views.

However, the party has been reluctant to act on such a system without the backing of the other main parties, a fact evident once again this week.

In March 1991 Charles Haughey invited the other party leaders to meet him to discuss the question. However, Government files record that "these talks did not take place, as the political climate was not right".

In April 1994 Mr Haughey's successor took up the idea. However, Albert Reynolds faced a total lack of enthusiasm from the other parties. Interestingly, in light of Fine Gael's outright rejection of the latest attempt to introduce such a system, John Bruton in 1994 confirmed that he supported the concept in principle and was willing to take part in discussions.

However, Fine Gael has changed its attitude now. On November 16th Maurice Manning wrote to the Government Chief Whip informing him that the latest proposal had been considered by the Fine Gael front bench. A majority of the members had concluded that "an honours system was foreign to our traditions and essentially was more trouble than it was worth".

Seamus Brennan replied to Maurice Manning last Wednesday. In that letter, released to The Irish Times, he noted that the Taoiseach fully accepted the Fine Gael views and, in the light of this, was "satisfied that we should not pursue the matter any further". The Labour Party, which is supportive of the idea, was also informed of the Taoiseach's decision to drop the proposal. Government sources confirmed last night that the idea is now dead.