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Articles

Problem, Process and Product: Implementing Key Reforms in Local Government in Northern Ireland Since the Belfast Agreement

Pages 525-537 | Received 29 Aug 2010, Accepted 07 Jan 2011, Published online: 01 Mar 2012
 

Abstract

This article maps the key findings from empirical research on how local government mainstreamed new statutory duties to promote equality and good relations in a change implementation process emerging from reform introduced in 1998 to embed the Northern Ireland peace process. It departs from the elite political focus of much of the international literature on peace building and addresses organisational change developments in a context that was intensely politicised, highly contentious and required radical organisational change. Newry and Mourne District Council addressed their problem of perceived inequality in employment, by engaging in a lengthy process of change and development to achieve ‘product’ in the form of a more balanced workforce, power sharing in the Chamber and more participative democratic arrangements for decision-making, both inside the organisation and in external relations. The key factors that facilitated this change process included the availability of political will, change champions, appropriate resources and structural adaptation.

Notes

It is noted that local government in Northern Ireland will still have considerably lesser powers than their counterparts in England, until the Review of Public Administration takes effect in 2014.

The research used qualitative methods and techniques as well as multiple sources of evidence, including interviews with officials, politicians, external expert practitioners and other key informants; a broad literature search; and triangulated this data with documentary evidence from council minutes, reports and audits so that a chain of evidence was established. Further research on selected councils revealed historical ‘equality and good relations’ issues, including the development of council policy on flags and emblems, equality and community relations work. This research adopted a processual focus (Pettigrew et al. Citation1992) over a medium- to long-term phase of change – over more than 10 years. Conclusions were verified by the examination of rival interpretations (Miles and Huberman Citation1994, Yin Citation2003), the internal rigour of the interviews and by secondary source documentation. They were tested by sending drafts to key participants for critical comment, engaging in on-going dialogue and critical discussion with practitioners, two university supervisors, and the professional expertise of the researcher was tested by peers and the two additional practitioner mentors.

It is noted that the demands of the Civil Rights Movement in Northern Ireland in 1969 were met in large part within the year. The term ‘objective grievance’ relates to persistent structural inequalities.

Fredman argues for a value-driven approach, which challenges liberal assumptions of state neutrality and individualism, claiming them insufficient to promoting equality.

McCrudden (Citation2004) claims the judiciary in Northern Ireland has ‘a tendency to elide non-discrimination and equality of opportunity’ (p. 13) and that this needs to be addressed because Section 75 (1) extends beyond anti-discrimination.

The author's doctoral research investigated mainstreaming the good relations duty in three local councils and her subsequent work has added to this data.

The Fair Employment Commission became a directorate of the Equality Commission for Northern Ireland on its establishment in 2000.

In 2005, Newry and Mourne District Council had 30 elected members of whom 13 were Sinn Fein, 9 SDLP, 3 UUP, 2 DUP, 2 Independent and 1 Green Party. Newry town had no Unionist representative.

This is separate from the Orange Order, although the two are often confused.

The Sinn Fein Mayor of District said this publicly at a conference in June 2006.

Councils, like all designated public authorities, were required to produce an Equality Scheme, which was approved by the Equality Commission.

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