Analysis: The safety of the 138,000 children who use school buses every day has never been a major policy priority, writes Seán Flynn, Education Editor.
With the possible exception of some health services, few public services can have been subjected to as much scrutiny as has the school transport system.
There have been at least six reviews of the service in the past 15 years and, broadly, all have sounded the same warnings about the very real risk to children's safety.
Two key recommendations resurface in each report. First, seat-belts should be compulsory on all school transport vehicles. Second, three pupils should not be allowed to sit in seats designed for two passengers, which often occurs.
The reports have produced some results. The creaking school bus fleet (average age 16) has been modernised to a limited degree. Spending on school transport has doubled from €51 million in 1997 to €117 million last year, although spending on special-needs pupils accounts for much of this increase.
But there has been no concentrated effort to boost safety standards.
The British move some years ago to make the wearing of seat-belts compulsory on all coaches carrying three or more children stirred some minor debate here, but no more.
The Department of Education's school bus system is one of the largest public transport networks in the State. To some observers it seems strange that this major transport service is run by the Department of Education.
The school transport section operates outside the direct ambit of the Minister for Education. Traditionally, school transport is one of the less important issues hived off to the junior minister in education. But this in itself can present practical difficulties.
Former minister of State Willie O'Dea was proactive on the school transport issue and did much to highlight the need for modernisation of the fleet and for higher safety standards.
On one occasion he submitted a request for an additional €14 million from the Department of Finance. This could have given many children their own seat on a bus.
But his status as a junior minister did not help matters. As one source said yesterday, "It is tough enough to secure additional funds as a full minister. But it is even tougher when you are a junior."
In fairness, the prevalent view that Bus Éireann had a decent safety record may also have been a factor.
As junior minister Mr O'Dea himself paid tribute to the company's "excellent safety record" four years ago.
One political source said yesterday: "We took the lazy option - if it ain't broke, don't fix it. Everyone knew that the bus fleet was creaking, but there was no real pressure from the public to change things."
But was the safety record actually that good?
Four years ago several schoolgirls were injured when the rear window of a school bus collapsed. At the time, Fine Gael's Jim Higgins said the accident confirmed that many of the buses should be consigned to the scrap heap.
"Many of them are rejects from Bus Éireann and Dublin Bus fleets. A substantial number are second-hand imports, and 578 of them are over 16 years old," he complained.
There have been scores of other complaints voiced by Mr Higgins and others about faulty brakes, leaking roofs and exposed wires on school buses. There have also been cases where private operators were found driving school buses with no insurance.
The current junior minister in education, Síle de Valera, recently received the latest report on the school transport system. It makes the now familiar recommendations.
By some estimates, boosting the fleet to provide each child with his or her own seat could cost over €50 million.
Other steps could be taken if the Government is to respond seriously to this week's tragedy.
The INTO believes an adult supervisor, in addition to the driver, is a necessity on all buses. "To expect a driver to be responsible for behaviour and the safety of all as well as driving the bus is not acceptable," it says.
Many also believe legislation is required to make it illegal for a motorist to overtake a school bus when children are being picked up or dropped off.
For now the department is focusing on phasing out the situation where three students sit on a seat for two.
It says discussions on this have been under way for months. At present there are no plans to make the wearing of safety-belts compulsory on all school transport.