A discussion paper proposing a five phase process for the ... · ‘peace walls’ went up all...
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A discussion paper proposing a five phase process for the removal of ‘peace walls’ in Northern Ireland Tony Macaulay JULY 2008
Transcript of A discussion paper proposing a five phase process for the ... · ‘peace walls’ went up all...
Adiscussionpaperproposingafivephaseprocessfortheremovalof‘peacewalls’inNorthernIrelandTonyMacaulay
JULY2008
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TableofContents
1.Preface............................................................................................................... 3
2.Introduction ....................................................................................................... 6
3.ConditionsforanEffectiveProcess..................................................................... 7
4.CharacteristicsoftheProcess ............................................................................. 7
5.AFivePhaseProcess .......................................................................................... 8Phase1:Mapping............................................................................................................................................... 8Phase2:Consultation....................................................................................................................................... 8Phase3:LocalInterfaceDevelopmentPlans ......................................................................................... 9Phase4:ImplementationandSupport ..................................................................................................... 9Phase5:Normalisation ................................................................................................................................... 9
6.RolesandResponsibilitieswithintheProcess................................................... 11
7.TheWayForward ............................................................................................. 11
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1.Preface
IgrewupatthetopoftheShankillRdinBelfastinthe1970’s.Thesocalled‘peacewalls’wentupallaroundme.ThenearestonewasatSpringmartin.ForeveryinchIgrew,itgrewsixfeet.Itmademefeelsafebutitobviouslydidn’twork.Peoplefromeithersidecrossedtheinterfacetokillpeopleontheotherside.
Inthe1980’s,whileworkingacrossthesectariandivideinNorthBelfast,Ilivedrightonthepeaceline.Iwillneverforgetfeelingsovulnerabletoattackeverysinglenight,theinsecurityandthelackofsleep.
Inolongerlivethere,butforthepast25yearsIhaveworkedwithhundredsofgroupswhoaretacklingsectarianismandtryingtoimprovethequalityoflifeinourmostdisadvantagedcommunities.
ManyofthosegroupsaredoingcourageousworkacrosstheinterfacesandinthepastfewyearsInoticedachangeintheirconversationsaboutthepeacewalls.Peoplestartedtotalkabout‘when’ratherthan‘if’thewallscomedown.
ResearchcarriedoutinJanuary2008reflectedthischange.TheUS‐IrelandAllianceengagedMillwardBrownUlstertoaskresidentsofasampleofinterfaceareasinBelfastfortheirviewsonthe‘peacewalls’.
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Thesurveyfound‘strongagreementthatthewallsservetohelpresidentsfeelsaferbykeepingthecommunitiesseparated.’
However,whenaskediftheywouldbeinfavouroropposedtothewallscomingdown,81%oftheresidentspolledwereinfavour:
• 21%saidnow• 60%saidyes,whenit’ssafeenough,butnotatpresent
ThenduringtheinvestmentconferenceinMay2008,theMayorofNewYork,MichaelBloombergsaid"Thehistoricculturalbarriersbetweenthetwocommunitieshereareslowlycomingdownandthesoonertheydo,andthesoonerthephysicalbarrierscomedownaswell,thesoonerthefloodgatesofprivateinvestmentwillopen."
Laterthatmonth,speakingintheAssembly,formerFirstMinisterIanPaisleyrespondedpositively.Hesaid"Butwhenthoseonbothsidesofthewallmutuallycometoagreementandsaywearetakingdownthesewalls,thenwewillhavewonagreatvictoryandIlookforwardtothatvictorybeingsealedoverandoveragainintheseareaswheretherehasbeengreattroubleinthepastdays."
Howeverinspiteofthesechanges,wallscontinuetogoup,mostrecentlyinthegroundsofHazelwoodIntegratedPrimarySchoolandaspartofsomenewprivatedevelopments.
In2005amappingexercisecarriedoutbyBelfastInterfaceProjectandtheInstituteforConflictResearchidentified83barriersinBelfastalone.OutsideofBelfast,askany14‐year‐oldboyandhewilltellyouwherethesectarianinterfaceis,thelinehedoesn’tfeelsafetocrossinhisowntown,whetherit’sLurganorLimavady,CookstownorKilkeel.
Theerectionofpeacewallshasbeensustainedthroughtheceasefires,thetenyearssincethesigningoftheAgreementandtheestablishmentofadevolvedgovernment.Howeverinrecentyears,communityinitiativeshaveresultedinadecreaseinthenumberofseriousviolentinterfaceincidents.Insomeplacesthewallsprovideavenuefor‘recreationalrioting’organisedbycrosscommunitytextingandinotherplacestherearenowmoretouristvisitsthanviolentincidents.
Asaresultofthischangingcontext,Idecidedtowritethisindependentdiscussionpaper,‘AProcessforRemovingInterfaceBarriers’,tostimulatediscussionaboutthesortofprocessthatneedstobeputinplacetomakeitsafeenoughforthewallstocomedown.It’sacompletelyindependentpaper.Itwasn’tcommissionedorfundedbyanyorganisation.Itisapersonalcontributiontostimulatediscussion.
Thepaperhighlightstheconditionsrequiredsuchasreachinga‘tippingpoint’;whenthebenefitsofremovinginterfacebarriers,suchaseconomicregeneration,outweighthebenefitsofmaintainingthem.
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Italsoidentifiestheessentialcharacteristicsoftheprocesssuchasthesafety,wellbeingandqualityoflifeofinterfaceresidentsbeingofparamountimportance.Theproposedprocesshasfivemainphasestobecarriedforwardwithinthecontextofcommunity,social,educationalandeconomicdevelopmentininterfaceareas.ThisinvolvesmappingalloftheinterfacesinNorthernIreland,amajorconsultationwithpeoplelivingininterfacecommunities,developing‘LocalInterfaceDevelopmentPlans’,implementingandsupportingtheseplansandmovingto‘normalisation’withoutbarriers.TheinitiationoftheoverallprocesswouldbetheresponsibilityoftheNorthernIrelandExecutive.Thecommunity/voluntarysector,localauthorities,police,youthservice,schools,businesses,electedrepresentativesandchurcheswithininterfaceareaswouldallplayapart.
Theprocesswouldbecommunitydrivenandgovernmentsupported–both‘bottomup’and‘topdown’.Localpeoplelivingbesidethepeacelineswoulddecidehowandwhenabarriershouldberemoved,withthefullsupportofgovernmenttoplanandsupportthechanges.
SincecirculatingthepaperinJuly2008,theresponsehasbeenoverwhelming.Peoplereallywanttotalkaboutthis.
Therehasbeenalotofinterestfromcommunitygroups,churches,statutoryagencies,electedrepresentativesandthemedia.Itseemsitistherighttimeforthisdiscussion.
Mostpeoplehavewelcomedthediscussionandaresupportiveofaprocessofthiskind.
SpeakingonBBCRadioUlster’sTalkbackprogramme,OFMDFMJuniorMinisterGerryKellysaidthepaperwas‘important’andsupportedtheideaofbothastrategicapproachandtheinvolvementoflocalcommunities.OtherMLA’sandBelfastCityCouncillorshavebeenkeentodiscusstheideasfurther.Ibelievethisisaverypositivesign.Ifourpoliticalleaderscanagreeonlaunchinganinitiativethatwillresultinthepeacewallscomingdowntheywillhavemadeanenormousstepforward,notjustforthewidereconomy,butmoreimportantly,forthepeoplelivingincommunitiesthathavesufferedsomuchinthepast.
RemovingthepeacewallswillbeanenormouschallengebutIthinkwecandoit.Ifirmlybelievethatthepeacewallsthatwentupinmyyouthwillcomedowninmylifetime.
TonyMacaulay
October2008
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2.Introduction
ThisdiscussionpapersuggestsaprocessfortheremovalofinterfacebarriersinNorthernIreland.Itisanindependentproposalintendedtostimulatediscussionwithinandbetweenlocalinterfacecommunitiesandgovernmentandotherstakeholders.
Forthepastfortyyears,interfacebarriershavebeenerectedinBelfast,Derry/Londonderry,PortadownandLurgan1asaresponsetointercommunityviolence.Thesebarriersincludewalls,fences,securitygates,derelict‘bufferzones’andbarriersthathavebeenplannedintoinfrastructureandregenerationdevelopment.2
Theerectionofinterfacebarriershasbeensustainedthroughtheceasefires,thetenyearssincethesigningoftheAgreementandtheestablishmentofadevolvedgovernmentin2007.Howeverinrecentyears,communitybasedinterventionshaveresultedinadecreaseinthenumberofviolentinterfaceincidents.
InJanuary2008,theUS‐IrelandAllianceengagedMillwardBrownUlstertoaskresidentsofasampleofinterfaceareasinBelfastfortheirviewsonthe‘peacewalls’.
Thesurveyfound‘strongagreementthatthewallsservetohelpresidentsfeelsaferbykeepingthecommunitiesseparated.’3
However,whenaskediftheywouldbeinfavouroropposedtothewallscomingdown,81%oftheresidentspolledwereinfavour:
• 21%saidnow• 60%saidyes,whenit’ssafeenough,butnotatpresent• 17%saidtheydidn’tcareifthewallsnevercomedown
• 61%agreedthatlocalpoliticiansshouldbedoingmoretocreate
conditionsforthewallstocomedownThispapersuggestsaprocessthatwouldcreatetheconditionstomakeitsafeenoughforthewallstocomedown.
1LessformalinterfacebarriersalsoexistinmanyotherpartsofNorthernIreland2ForabreakdownofthetypeandlocationofinterfacebarriersinBelfast,aswellasananalysisofthebackgroundandchangingcontextsee‘SecurityandSegregation:InterfaceBarriersinBelfast’byNeilJarmanin‘SharedSpace:Aresearchjournalonpeace,conflictandcommunityrelationsinNorthernIreland’publishedbytheCommunityRelationsCouncilinJune2008.31,037peoplewerepolledintheFalls/Shankill,ShortStrand/TemplemoreAvenueandAntrimRd/TigersBayareas.Fordetailsofthesurveymethodologyandfindingsseewww.us‐irelandalliance.org
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3.ConditionsforanEffectiveProcessTheconditionsrequiredforaneffectiveprocessthatwouldresultintheremovalofinterfacebarriersareasfollows:
• asustainedperiodofpoliticalstability• asustainedperiodofasubstantialreductioninviolentinterfaceincidents,
particularlyduringthesummerperiod• sustainedcontact,dialogueanddiscussionbetweencommunityleaders
onbothsidesoftheinterfaces• reachinga‘tippingpoint’,whenkeystakeholdersseethebenefitsof
removinginterfacebarriersasoutweighingthebenefitsofmaintainingthem
• ahighlevelofconfidenceinthepolicingofinterfaceareas• ongoingcommunity,social,educationalandeconomicdevelopmentand
theregenerationofinterfaceareas• effectiveyouthworkstrategiesinplaceininterfacecommunities• bothsupportfortheprocessandengagementintheprocessbyinterface
residents(includingchildrenandyoungpeople),electedrepresentatives,governmentbodiesandcivicsociety
• ahighlevelofconfidenceamonginterfaceresidentsthattheoutcomeoftheprocesswillbealastingimprovementinsafety,securityandqualityoflife
• adequateresourcestosupporttheimplementationoftheprocess
4.CharacteristicsoftheProcessTheessentialcharacteristicsoftheprocessareasfollows:
• Thesafety,wellbeingandqualityoflifeofinterfaceresidentsmustbeatthecentreoftheprocess
• Theprocessmustrecognise,buildonandlearnfromthesuccessof‘grassroots’interfaceworkinrecentyears
• Theprocessrequirespoliticalleadershipandgovernmentsupport• Theprocessrequirescrossdepartmentalandcrosssectoralco‐operation• Theprocessmustbeboth‘bottomup’and‘topdown’,withlocal
communityandgovernmenttakingonappropriaterolesandresponsibilities
• Theprocessrequiresastrongcommitmenttoco‐operationandpartnershipamongallstakeholders
• Theprocessrequireseffectivemanagement,co‐ordination,monitoringandevaluation
• Theprocesswillrequiresufficientfinancestosupporteffectiveimplementation
• Theprocessmustbeflexibletoaccommodatethefactthatallinterfacesaredifferentandwillrequiredifferentapproachesandtimescales
• Theprocessshouldoperatewithinthecontextofanywiderpolicyofcohesion,sharingandintegrationandshouldbeunderpinnedbyprinciplesofequalityandhumanrights
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5.AFivePhaseProcess
Theoverallaimoftheprocessistocreatethecircumstancesinwhichinterfacebarrierscanbesafelyremoved.
Theproposedprocesshasfivemainphases(seeFigure1overleaf):
Phase1:Mapping
Phase2:Consultation
Phase3:LocalInterfaceDevelopmentPlans
Phase4:ImplementationandSupport
Phase5:Normalisation
Thefivephaseswouldinvolvethefollowingaction:
Phase1:Mapping
ThisfirstphasewillinvolveadetailedmappingofallinterfacebarriersacrossNorthernIrelandincludingtype,location,history,recordsofrecentincidents,analysisofanyexistingresearch,consultationandreportsonviewsoflocalresidentsandotherkeystakeholders.4
Phase2:Consultation
Thefocusofthesecondphasewillbetoconsultwithlocalresidents(includingchildrenandyoungpeople)ineachoftheinterfaceareasidentifiedthroughthemappingprocess,toseektheirviewsonthe‘peacewall’andtheconditions,ifany,underwhichtheycouldseeitsafelychanged/removed.
4In2005amappingofinterfacebarrierswascarriedoutinBelfastbytheBelfastInterfaceProjectandtheInstituteforConflictResearch.Thisidentified83barriersinthecity.Seewww.belfastinterfaceproject.org
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Phase3:LocalInterfaceDevelopmentPlans
ThefindingsofeachlocalinterfaceconsultationwouldfeedintoaLocalInterfaceDevelopmentGroup(LIDG)ineachinterfaceareaorinterfaceclusterarea5.TheLIDGwouldbemadeupofrepresentativesofallcommunity,voluntaryandstatutorystakeholdersincludinginterfacegroups,communitygroups,churches,localauthorities,youthservice,schools,HousingExecutive,police,localbusinessandelectedrepresentativesfrombothsidesoftheinterface.6
TheLIDGwouldengageinaparticipatoryplanningprocess7withlocalresidentstodevelopa5YearLocalInterfaceDevelopmentPlanfortheirarea.Thiswouldincludeactionsteps,rolesofthevariousstakeholdersindeliveryofthePlan,timescalesandtheresourcesrequired.AkeyoutcomeofthePlanwouldbetheremovaloftheinterfacebarrier.
TheDevelopmentPlanshoulddovetailwithexistinglocalandregionalpolicies,strategies,programmesandinitiatives.
Phase4:ImplementationandSupport
OncetheLocalInterfaceDevelopmentPlanhasbeenagreedandadequateresourceshavebeencommitted,anImplementationPhasewouldcommence.Thiswillrequireongoingmanagement,co‐ordination,monitoringandevaluationbytheLIDG.Theprocesswillalsorequireongoingintercommunitycontact,dialogueanddiscussion,effectiveyouthworkstrategiesandongoingcommunity,socialandeconomicdevelopmentandregeneration.TheimplementationoftheLocalInterfaceDevelopmentPlanswillrequiretheongoingco‐operationandsupportofarangeofgovernmentagenciessuchasRoadsService,PlanningandInvestNI.TheLIDGwould,aspartofthePlan,putinplaceprotocolsforsupportforlocalresidentsinresponsetoanypossibleincidents.
Phase5:Normalisation
Bytheendofthe5YearInterfaceDevelopmentPlanstheinterfaceareaswillhavereachedaphaseof‘normalisation’whereongoingcommunity,social,educationalandeconomicdevelopmentisnolongerrestrainedbytheimpactoftheexistenceofaninterfacebarrier.AtthisstagetheLIDGwillnolongerberequired.Howeveranongoingmonitoringfunctionwouldbemainstreamedwithinmorepermanentstructuresineachlocalcommunity.
5Somelocalareashaveclustersofnearbyinterfacebarriers.6Insomeareasastructureofthisnaturemayalreadyexist.7Participatoryplanningisanapproachtoplanningwhichinvolvestheentirecommunityinthestrategicandmanagementprocessesofplanning.
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Figure1:AProcessforRemovingInterfaceBarriers
YOUTHWORKSTRATEGIES
PHASEI:MAPPING
PHASEII
CONSULTATION
PHASEIV
IMPLEMENTATIONANDSUPPORT
PHASEV:NORMALISATION
COMMUN
ITY,SOCIAL,EDUCATIONALAN
DECONOM
ICDEVELOPMENT
REGENERATION
INTERCOM
MUN
ITYCONTACT,DIALOGUEAN
DDISCUSSION
PHASEIII
LOCALINTERFACEDEVELOPMENTPLANS
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6.RolesandResponsibilitieswithintheProcess
TheinitiationoftheoverallprocesswouldbetheresponsibilityoftheNorthernIrelandAssembly.
OtherkeystakeholdersatpresentincludetheNorthernIrelandOffice,theCommunityRelationsCouncilandLocalCouncils.
ARegionalWorkingGroupwouldberequiredtolead,facilitateandco‐ordinatetheoverallprocess.
LocalInterfaceDevelopmentGroupswithrepresentativesofallthekeystakeholderswouldberequiredforeachinterfaceorinterfaceclustertolead,facilitateandco‐ordinatetheconsultation,developmentandimplementationoftheLocalInterfaceDevelopmentPlans.
7.TheWayForward
Thisproposalwillbecirculatedtoawiderangeofstakeholderstostimulateandcontributetodiscussionsonthewayforward.
Itwouldbeparticularlyimportantforgroups,organisationsandsectorsthathavenotyetconsideredtheirroleandresponsibilitiesaroundtheseissuestobeginaconversationtoexplorewhatroletheyhavetoplayinsuchaprocess.
TonyMacaulay8
MacaulayAssociates
July2008
8TonyMacaulayisanindependentdevelopmentandmanagementconsultantwhohasworkedincommunitydevelopment,conflicttransformation,youthwork,equality,humanrightsandpeacebuildingininterfaceareasinNorthernIrelandforthepast25years.
