Path dependency in policy-making in Northern Ireland: the first community relations policies in 1969–1974

ABSTRACT

This article analyses how community relations (CR) policies were devised in 1969 in Northern Ireland and how they evolved in the first two years. Based on Greener's theory of path dependency in policy-making, the author contends that the decisions made in that period were part of a ‘creation phase’. Then, the circumstances of the year 1971 caused a ‘lock-in’ which set out preferred CR approaches. More alternative strategies were simultaneously locked out. This pattern was reinforced after 1974 under Direct Rule. This article thus identifies a ‘path’ in CR policies but also, interestingly, in the relationship binding policy-makers and the community sector. Arguably, it is against this backdrop that more contemporary peacebuilding policies were (re)created.

KEYWORDS:

• Northern Ireland
• community relations
• policy-making
• path dependency
• peacebuilding
• history
• 1970s

Acknowledgments

The author wishes to thank Joe Camplisson, Jim Fitzpatrick, Hywel Griffiths and Maurice Hayes for their contributions and Hamayon-Alfaro for her review work.

Disclosure statement

No potential conflict of interest was reported by the author.

Notes

1. Ministers in charge: Dr Robert Simpson, Unionist (Dec 1969–March 1971) ; D.W. Bleakley, NI Labour Party (March–Sept 1971) ; Vacant (25 Sept–26 Oct 1971) ; W. B. McIvor, Unionist (26 October 1971–March 1972) ; William van Straubenzee, Conservative (March & April 1972) ; Lord Windlesham, Conservative (April 1972–Nov 1973) ; Ivan Cooper, SDLP (Nov 1973 – May 1974).

2. Catholic families mainly were forced to leave their homes. Protestants to a lesser extent (Community Relations Commission Research Unit, 1971). As stated by The Ardoyne Commemoration Project:

Certain parts of Ardoyne were at one time more ‘mixed’. However, during the 1969–1971 period there was a substantial movement of people into and out of the district. This not only ensured that the population of the area became more homogenous but that its boundaries were also increasingly clear and socially and politically significant. Ardoyne became a nationalist island in a loyalist sea, shaping a growing sense of siege and isolation. (The Ardoyne Commemoration Project, 2002: 8).

3. There are different interpretations as to the reasons leading to his resignation. Although Bleakley himself claimed to do so as a protest at the introduction of internment, Maurice Hayes argued that his assignment was not renewed. From Hayes’ interview: ‘In writing his own memoirs he said he went as a protest against internment. He didn't. He went because his six months were up.'