Minutes:
The Chief Executive submitted for the Committee’s consideration the undernoted report:
“1.0 Relevant Background Information
1.1 Members will be aware that Strategic Policy & Resources Committee at its meeting on 18 November 2011 agreed:
‘that the Party Group leaders meet with the Centenaries Working Group over a defined period of time, as set out (in the report), to explore the possibility of developing a Council strategy on diversity and agree that the Chief Executive’s office liaise with Members to agree a timetable of meetings to be tabled at the first joint meeting of the Historic Centenaries Group.’
It also agreed the following items for discussion:
- memorabilia and displays in and around the City Hall
- Flying of the Union Flag Equality Impact Assessment
- the Decade of Centenaries programme, events, cultural displays in Council public facilities
- use of the Irish language
- use of the Ulster-Scots language
- use of minority ethnic languages
- how the Council deals with homecoming parades
- Queen’s Diamond Jubilee celebrations
- expressions of distinctiveness within local areas and neighbourhoods (i.e. including public art, signage and symbolism).
1.2 The Joint Group has now met on 7 occasions and has agreed to bring a report to update Strategic Policy & Resources Committee on discussions within the Joint Group. The paper is to seek formal authority on recommendations and gain approval to continue discussions in relation to City Hall displays and other outstanding issues.
2.0 Key Issues
2.1 Emerging themes
1. In preliminary discussion, a number of themes have been agreed:
2. In the visible face of the City Council, there is a need to represent the total complexity of the city fairly, including in City Hall. The definition of fairness will necessarily change continuously with the city. At the present time, this requires attention to be paid to diversity in relation to British-ness and Irish-ness, as well as to other under-represented aspects of Belfast life including migration, poverty, labour, ethnic minorities and women;
3. Trust and robust working relationships are central to the ability of the Joint Group to reach agreement on issues. There is a need to go beyond the minimum ‘live and let live’ approach, towards respect for each other’s identity and traditions. Progress will only be possible through open discussion, a willingness to meet the expressed needs of others and a commitment to ‘reciprocal generosity’;
4. Councillors recognised that the issues under discussion have consequences beyond City Hall, within the city as well as at a Northern Ireland Executive level, and there is a need to be mindful of these interests;
5. There is a commitment to engage in process and detailed discussions which exhaust all possible avenues for consensus;
6. Disagreement on specific issues should be done in a civil and balanced way, so as not to jeopardise broader goals;
7. For Unionists, the act of ‘adding to’ is less contentious and for Nationalists, there is a desire to increase a diversity of cultural expression in and around City Hall. Parties need to consider whether it is worthwhile having a discussion around re-location to take account of removal being portrayed as defeat, whereas adjustment can be seen as democratic accommodation;
8. Re-location of current displays requires sensitive and detailed discussion and agreement on restoration and future display;
9. There is particular sensitivity in the Unionist community over the armed forces and Remembrance Day.
10. There is no desire for commemorations or displays relating to recent paramilitary activities or organisations, cloaked in broader identity issues.
11. The City Hall should not be ‘shared out’ in different distinct zones of variable sectarian shades, but should be an open access building for all.
12. These are largely in line with and enhance those principles agreed by Centenaries Working Group 17 October 2011 and subsequently by Strategic Policy and Resources Committee 21 October 2011.
2.2 Actions underway
There were a number of ‘time-critical’ actions that the Joint Group agreed to forward to SP&R Committee, in advance of this update report. They include:
- The Queen’s Diamond Jubilee celebrations programme;
- A number of City Hall bookings to commemorate the Covenant including the Presbyterian Church and Co?operation Ireland; and
- Commissioning of an exhibition as part of the Decade of Centenaries covering the first period, 1912-1914, entitled ‘Shared History, Differing Allegiances’.
The Joint Group is keen that these early agreements are seen within the context of the principles and themes outlined above, and supportive of the emerging diversity strategic framework.
2.3Equality Impact Assessments (EQIA) reports
The Joint Group has received presentations on the 2 EQIA reports in relation to the flying of the Union Flag; and Belfast City Hall: Promoting a Good and Harmonious Environment.
When undertaking an EQIA, the Council closely follows the guidance issued by the Equality Commission for Northern Ireland (ECNI) in 2004 which recommends that there should be seven steps in the EQIA process:
Step 1: Definition of the aims of the policy – completed Step 2: Consideration of available data and research – completed
Step 3: Assessment of potential and actual impacts – completed
Step 4: Consideration of measures – completed
Step 5: Formal consultation
Step 6: Decision and publication of the results of the
EQIA
Step 7: Monitoring for adverse impact.
The 2 separate reports set out the findings of the first four steps of the process and were considered at early meetings of the Joint Group and subsequent party group briefings.
Following lengthy preliminary discussion, Members agreed that the Strategic Policy and Resources Committee be recommended to proceed with the formal consultation process on the Equality Impact Assessment, based upon the best advice available from the Equality Commission and others as to the form which this should take.
The Joint Group sought clarification on a number of issues:
- Local agreements with trade unions regarding the flying of the Union flag at Duncrue Complex;
- An analysis of the trends regarding employment by community background in the Council; and
- The consultation requirements of the ECNI, in particular, the methodology for surveying employees in relation to the 2 EQIA reports and questions relating to chill factors.
An analysis on the trends regarding employment by community background in the Council has been included in the final EQIA report, including a breakdown of the senior levels of management.
The Head of Human Resources confirmed that after examination, there is no evidence of any local agreement with trade unions regarding the flying of the Union flag at Duncrue. In line with normal Council arrangements, the Council’s trade unions would be consulted regarding any potential change of policy and fully involved in any communication exercise.
In relation to the consultation methodology, ECNI has confirmed the following:
- There is no definitive requirement re consultation - i.e. no fixed number of sessions or style etc. required – as long as the consultation is timely, open and inclusive;
- The 2 EQIAs should be consulted on concurrently, so as to avoid duplication and potential confusion for members of the public;
- Any public consultation process had to be proportionate (on grounds of economy) and realistic;
- Separate public consultation sessions should be held for each EQIA as the likely attendees would represent different sectors of interest – e.g. the memorabilia session might likely attract local historians, art lovers etc
- In relation to the Flying of the Union Flag EQIA, they agreed that one public consultation event would be sufficient to gauge public views and that this could be held in a central Council venue, but not the City Hall;
- A press release should be issued to make the public aware of the EQIAs and information should be placed on the BCC website so members of the public can also submit their views individually, in addition to attending the formal public meeting;
- A staff on-line survey was a positive measure since questionnaire completion provided privacy and an opportunity to report individual views anonymously. The questions should be designed in accordance with recognised social survey methodology and signed off by the Equality Commission for NI. It should be available to all staff and not just those directly affected;
- A joint questionnaire for staff would be preferable as long as the sections were clearly identified and the questions were ‘plain English’ proofed with as much clarity as possible;
- ECNI queried the need to hold additional focus groups, questioning what benefit this would add to the process; they were of the opinion that these were unnecessary and that the questionnaire method alone should be used to ascertain staff views.
- In line with this advice, the following time-line is recommended by the Joint Group for the 2 EQIA consultations to run concurrently:
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4 May |
Presentation of EQIA reports to Strategic Policy & Resources Committee
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18 May |
Presentation of City Hall interpretative displays action plan to SP&R Committee (to be attached as draft action plan to EQIA report for consultation)
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6 June |
Ratification of documents for consultation by Council
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7 June |
Issue for 16 week consultation period (inc. extra 4 weeks over holiday period)
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27 Sept |
Close consultation
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28 Sept – 12 Oct |
Process and integrate consultation responses
Draft implementation and resource plans
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19 Oct |
Presentation to Strategic Policy & Resources
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1 NovemberRatification by Council
Policy implementation as politically directed |
The workshops to develop the City Hall interpretative displays action plan are ongoing and, if possible, this plan will be attached to the EQIA report for public consultation. However, if this process is not completed, the EQIA report will be released without this appendix.
2.4Belfast City Hall: Promoting a Good and Harmonious Environment
In addition, the Joint Group is holding two workshops, facilitated by Dr. D. Morrow, along with an expert advisor on interpretative design. The aim of the workshops is:
‘To develop a visitor/user experience that is more coherent in telling the stories of Belfast in City Hall, in-keeping with the recommendations emerging from the draft report entitled: ‘Equality Impact Assessment on Belfast City Hall: Promoting a Good and Harmonious Environment.’
The terms of reference for the advisor are:
- In a workshop format, to present innovative interpretative design solutions from elsewhere, particularly in relation to contested histories;
- To work with elected Members to generate ideas and identify an inclusive range of stories and key objects that they wish to present in the context of City Hall;
- To present ideas on ensuring a coherent, balanced narrative and identify any gaps;
- To engage in dialogue with Members on preliminary design options for the presentation of displays and narratives in City Hall;
- To outline potential resource implications (asset/human/financial) of an enhanced visitor/user experience in City Hall.
- The Joint Group are holding these workshops in April and early May, to develop a detailed action plan for the Committee to consider in the context of the EQIA report.
2.5Languages
Members of the Joint Group have initiated discussion on the issues of:
- use of the Irish language
- use of the Ulster-Scots language
- use of minority ethnic languages
They are considering in detail the Council’s current language policy and will report to Strategic Policy & Resources Committee in due course. In early discussions, it was agreed that the Joint Group would recommend to Strategic Policy & Resources Committee the following:
- A formal Council calendar of cultural diversity events, incorporating events organised by the Council and funded by the Council;
- The promotion of the availability of Irish language tours in City Hall, by arrangement;
- The addition of Google's free website translator to the Council website, offering instant access to automatic translation of the pages.
The Joint Group has agreed that invitations will be extended to Foras na Gaeilge, Pobal and other relevant sectoral groups to meet with the Joint Group, to hear their views on what further actions and resources they would consider to be priority in promoting the Irish language. This meeting will be convened in May. In line with the decision of Strategic Policy & Resources Committee, it was also agreed that a similar meeting will be facilitated with the Ulster-Scots sector.
Following these meetings with the sectoral groups, it was agreed that the outstanding potential actions listed would be discussed at a future meeting of the Joint Group, when there was opportunity to consider the expressed opinions of the sectoral groups, as well as examine resource implications of additional actions.
2.6Outstanding issues
At its meeting on the 27 January, the Joint Group agreed a work plan. The issues listed there which are under active discussion or remain outstanding are:
a.City Hall interpretative displays action plan
b.Language policy
c.Operation Banner
d. Homecoming parades
e. Expressions of distinctiveness within local areas and neighbourhoods
It is recommended by the Joint Group that they continue to meet until the end of May in the present format to continue with their agenda. They will report to SP&R Committee again on 8 June 2012.
3.0Resource Implications
Human: None at present.
Financial: Up to £3,000 + travel expenses for expert advice on interpretative design. This is available within revenue budgets and, to expedite delivery, has been commissioned under delegated authority.
Assets: None at present.
4.0 Equality Implications
All recommendations are in compliance with existing legal requirements and Equality Commission guidelines and aim to promote better relations within the Council and in the city.
5.0Decisions required
Following consideration of the above issues, Committee is asked to:
a. Agree the themes (outlined at 2.1);
b. Authorise the timetable for the EQIA reports on the Flying of the Union Flag; and City Hall Displays to proceed to public consultation (as outlined at 2.3);
c. Note the commissioning of expert advice on interpretative design for City Hall displays;
d. Approve the continuation of the Joint Group discussions – forward agenda to include:
- City Hall interpretative displays action plan
- Language policy
- Operation Banner
- Homecoming parades
- Expressions of distinctiveness within local areas and neighbourhoods; and
e. Receive a further update report on these matters in June 2012.”
The Committee adopted the recommendations.
Supporting documents: