Minister for local government

Although Cosgrave was one of the most politically experienced of Sinn Féin's TDs, Cosgrave was not within the leadership of the party. However, when Éamon de Valera formed the Second Ministry of Dáil Éireann on 2 April 1919, Cosgrave was named as Secretary of Local Government.^[10] His close friendship with de Valera and his long experience on Dublin Corporation, most recently as chairman of its finance committee, were among the reasons he was selected.^[11] His chief task as Minister was the job of organising the non-cooperation of the people with the British authorities and establishing an alternative system of government.

After the 1920 local elections, elected under the new system of single transferable vote, 28 of the 33 local councils pledged loyalty to the Ministry of Local Government established by the Dáil. These councils then cut their links to the British government.

Anglo-Irish Treaty

Cosgrave supported the Anglo-Irish Treaty, which had been signed on 6 December 1921. At the cabinet meeting in Dublin held to consider the Treaty immediately after it had been signed, Cosgrave surprised de Valera by agreeing with Collins and with Arthur Griffith, de Valera's predecessor as leader of Sinn Féin and the chairman of the delegation which included Collins that had negotiated the Treaty.^[12] It was narrowly supported by the cabinet in a vote of 4 to 3, and was supported by the Dáil in a vote of 64 to 57. However, de Valera voted against, and resigned as president in January 1922 (which in August 1921 had been upgraded from a prime ministerial President of Dáil Éireann to a full head of state, called President of the Irish Republic). Griffith succeeded de Valera as president. Collins, in accordance with the Treaty, formed a Provisional Government; this included Cosgrave amongst its membership as Minister for Local Government. From July onward, he also became Minister for Finance.

Chairman of the Provisional Government

The months following the acceptance of the Treaty saw a gradual progression to civil war. The split in Sinn Féin gradually deepened, and the majority of the IRA hardened against accepting anything less than a full republic. Collins and de Valera tried desperately to find a middle course, and formed a pact whereby Sinn Féin fought a general election in June with a common slate of candidates. Despite this pact, the electorate voted heavily in favour of pro-Treaty candidates. On the day of the election, the draft Constitution of the Irish Free State was published; it was rejected by the Anti-Treatyites, for it was clearly not a republican document. Collins, forced to a decision, opted to maintain the Treaty position and the support of the British government, and moved to suppress the Republican opposition that had seized the Four Courts in Dublin. The Civil War began on 28 June 1922, and the IRA was decisively defeated in the field over the following two months, being largely pinned back to Munster. In August 1922, both Griffith and Collins died in quick succession; the former of natural causes, the latter a few days later when ambushed by Republicans at Béal na Bláth, County Cork. With de Valera now on the fringes as the nominal leader of the anti-Treaty forces in the Civil War, the new dominion (which was in the process of being created but which would not legally come into being until December 1922) had lost all its most senior figures.

Though it had the option of going for General Richard Mulcahy, Collins' successor as Commander-in-Chief of the National Army, the pro-Treaty leadership opted for Cosgrave, in part due to his democratic credentials as a long-time politician. Having previously held the Local Government and Finance portfolios, Cosgrave became Chairman of the Provisional Government on 30 August and President of Dáil Éirean on 9 September. He served in both offices simultaneously until on 6 December 1922, when the Irish Free State came into being.

Domestic policy

W. T. Cosgrave

As head of the Free State government during the Civil War, he was ruthless in what he saw as defence of the state against his Republican former comrades. Although he disagreed with the use of the death penalty in principle, in October 1922, he enacted a Public Safety Bill, after difficult debates, and following the offer of an amnesty, that allowed for the execution of anyone who was captured bearing arms against the state, or aiding armed attacks on state forces. He told the Dáil on 27 September 1922: "although I have always objected to the death penalty, there is no other way that I know of in which ordered conditions can be restored in this country, or any security obtained for our troops, or to give our troops any confidence in us as a government". His view was that if harsh action were not taken, a guerrilla war could drag on indefinitely, making the achievement of law and order and establishing the Free State impossible.

His army ordered courts martial on the rebels, 77 of whom were executed by firing squads by May 1923, including Erskine Childers, Liam Mellowes and Rory O'Connor, far more than the 14 IRA volunteers the British executed in the War of Independence. The Republican side, for their part, attacked pro-Treaty politicians and their homes and families. Cosgrave's family home was burned down by Anti-Treaty fighters, and one of his uncles was shot dead.^[14] (see also Destruction of country houses in the Irish revolutionary period and Executions during the Irish Civil War).

Cosgrave said "I am not going to hesitate if the country is to live, and if we have to exterminate ten thousand Republicans, the three million of our people is greater than this ten thousand".^[15]

In April 1923, the pro-Treaty Sinn Féin members organised a new political party called Cumann na nGaedheal with Cosgrave as leader. The following month the Civil War was brought to an end, when the remaining anti-Treaty IRA guerrillas announced a ceasefire and dumped their arms.

Cosgrave (holding furled umbrella) visiting the sugar beet processing factory at Strawhall, County Carlow, October 1926

One of his first acts in government was to pass a Bill for the Constitution of the Irish Free State, that some TDs felt did not need to be in writing. This was done by October 1922, ahead of the establishment of the Irish Free State in December.

In the first few years in office, Cosgrave's government faced a number of problems. The government attempted to reduce the size of the National Army. During the Civil War it had grown to over 55,000 men which, now that the war was over, was far too large and costly to maintain. Some army officers challenged the authority of the government to cut the size of the Army. The officers, mostly Pro-Treaty IRA men, were angry that the government was not doing enough to help to create a republic and predicted massive unemployment.

When he and his position were challenged by the disgruntled Army officers of the Irish Republican Army Organisation, other politicians and soldiers took the important decisions.^[16]

In March 1924, more layoffs were expected, and army officers Major-General Liam Tobin and Colonel Charles Dalton sent an ultimatum to the government demanding an end to the demobilisation.^[17] Minister for Justice Kevin O'Higgins, who was also acting president for Cosgrave while the latter was in hospital, moved to resolve the so-called "Army Mutiny". Richard Mulcahy, the Minister for Defence, resigned, and O'Higgins was victorious in a very public power struggle within Cumann na nGaedheal. The crisis within the army was solved but the government was divided.

In 1924, the British and Irish governments agreed to attend a Boundary Commission to redraw the border which partitioned Ireland between the Irish Free State and Northern Ireland. The Free State's representative was Minister for Education Eoin MacNeill, a respected scholar. The Free State expected to gain much territory in heavily Catholic and republican parts of Counties Londonderry, Fermanagh, Tyrone, and Armagh, for the British government had indicated during the Treaty negotiations that the wishes of the nationalist inhabitants along the border would be taken into account. However, after months of secret negotiations a newspaper reported that there would be little change to the border, and the Free State would actually lose territory in County Donegal. MacNeill resigned from the Commission and, shortly afterwards, from the government for not reporting to Cosgrave on the details of the commission. Cosgrave immediately went to London for a meeting with the British Prime Minister and the Prime Minister of Northern Ireland, where they agreed to let the border remain as it was, and in return the Free State did not have to pay its pro-rata share of the Imperial debt. In the Dáil debate on 7 December, Cosgrave stated: "I had only one figure in my mind and that was a huge nought. That was the figure I strove to get, and I got it."^[18]

Cosgrave turned down a plea for asylum in Ireland for Leon Trotsky while in exile. The request was made by the trade union leader William O'Brien in 1930. Cosgrave recorded that he:

Told [O'Brien] "I could see no reason why Trotsky should be considered by us. Russian bonds had been practically confiscated. He said there was to be consideration of them. I said it was not by Trotsky, whose policy was the reverse. I asked his nationality. Reply Jew. They were against religion (he said that was modified). I said not by Trotsky. He said he had hoped there would be an asylum here as in England for all. I agreed that under normal conditions, which we had not here, that would be alright. But we had no touch with this man or his Government, nor did they interest themselves in us in his 'day'.^[19]

In June 1927, a general election was held in which de Valera's new party, Fianna Fáil, won many seats on an abstentionist platform. In July the Minister for Justice, Kevin O'Higgins, was assassinated on his way home from Sunday Mass by the IRA. The government passed the Electoral Amendment Bill (1927) to force Fianna Fáil to take their seats in the Dáil. This proved successful with de Valera and his party entering the Dáil in August of that year. Previously, without de Valera, Cosgrave faced very little opposition, giving him considerable freedom of action. However, de Valera's arrival significantly altered the situation.

Foreign policy

Cosgrave (standing, far-right, wearing the star and sash of the Order of Pope Pius IX) representing the Irish Free State at the 1926 Imperial Conference in London, along with King George V and the Prime Ministers of the United Kingdom, Canada, Newfoundland, Australia, New Zealand and South Africa

Although Cosgrave and his government accepted dominion status for the Irish Free State, they did not trust the British to respect this new independence. The government embarked on fairly radical foreign initiatives. In 1923 the Irish Free State became a member of the League of Nations. The new state also became the first British Commonwealth country to have a separate or non-British representative in Washington, D.C., and exchanged diplomats with many other European nations. In January 1926, Cosgrave was honoured by Pope Pius XI by making him the first Irishman to receive the rank of Knight Grand Cross of the Order of Pope Pius IX.^[20][21]

The Anglo-Irish Treaty itself also gave the Irish much more independence than many other dominions. The Oath of Allegiance in the Irish Free State was much less monarchist than its equivalent in Canada or Australia. The king's representative in Ireland was Irish, unlike the other dominions, and although the head of state was the king, power was derived from the Irish people and not him. There were also questions raised about the word "treaty". The British claimed it was an internal affair while the Irish saw it as an international agreement between two independent states, a point which was accepted by the League of Nations, when that body registered the Treaty as an international agreement in 1924.^[22]

Even with these advances, the Irish Free State legally remained subject to the United Kingdom until 1931, when the Statute of Westminster gave the Free State and the other dominions the right to full independence of legislative and constitutional action. This step effectively made the Free State the internationally recognised independent, although still partitioned, Irish state, arguably fulfilling Collins' vision of the Treaty giving the Irish people "the freedom to achieve freedom."

Economic policy

During the ten years that Cosgrave and Cumann na nGaedheal were in power they adopted a conservative economic policy. Taxation was kept as low as possible and the budget was balanced to avoid borrowing. The Irish currency remained linked to the British currency, resulting in the overvaluation of the Irish pound. Free trade was advocated as opposed to protection, but moderate tariffs were introduced on some items.

The new government decided to concentrate on developing agriculture, while doing little to help the industrial sector. Agriculture responded well with stricter quality-control being introduced and the passing of a Land Act to help farmers buy their farms. Also, the Irish Sugar Company and the Agricultural Credit Corporation were established to encourage growth. However, the economic depression that hit in the 1930s soon undid the good work of Cosgrave and his ministers. Industry was seen as secondary to agriculture and little was done to improve it. The loss of the industrialised north-east of Ireland had a bad effect on the country as a whole. However, the Electricity Supply Board, with the first national grid in Europe, was established to provide employment and electricity to the new state.

General election 1932

A general election was not required by law until the end of 1932. However, Cosgrave called one for February of that year. There was growing unrest in the country and a fresh mandate was needed for an important Commonwealth meeting in the summer. Another reason for calling the election early was the Eucharistic Congress to be held in June, a major national and international event.

Cosgrave, like most of his cabinet a devout Catholic, had invested much time in the build-up to it and wished it to proceed without any tension from a pending general election. In the event, Éamon de Valera and Fianna Fáil were the ones to derive all the kudos from that event.^[23] Cumann na nGaedheal fought the election on its record of providing ten years of honest government and political and economic stability. Instead of developing new policies, the party played the "red card" by portraying the new party, Fianna Fáil, as communists. Fianna Fáil offered the electorate a fresh and popular manifesto of social reform. Unable to compete with this, Cosgrave and his party lost the election, and a minority Fianna Fáil government came to power.^[24]