Consultation Paper
September 2003
1. Improving Relations in Northern Ireland – A Consultation Paper Response
For too long now the issue of division and sectarianism has been the elephant in the drawing room of Northern Ireland society. It has been all but ignored in polite circles, avoided through an elaborate complex of avoidance techniques and adapted behaviours, and has become the embarrassed secret of officialdom.
For this reason the Northern Ireland Council for Integrated Education (NICIE) wishes to welcome the A Shared Future document. Though not without its faults - the document lacks precision in places and tends to be vague and aspirational where it needs to be detailed and intentional - nevertheless the candour and forthrightness of the opening comments of Des Browne MP are refreshing. We endorse his assertion that patterns of division have become ingrained and that there are no quick fixes on offer and we welcome as possibly a sign of growing maturity and a new phase in our determination to tackle the issue that has scarred this community for too long.
NICIE believes that the problems outlined in A Shared Future are problems for the whole of Northern Ireland society. The adaptive behaviours of polite society here are not the normal behaviours of settled and mature communities. It is not normal, for instance, for whole towns and villages to be tacitly identified as ‘Protestant’ or ‘Catholic’, nor to see existing in our towns what amounts to segregated services in health, leisure, the law, estate agency or milk deliveries for example. Nor in normal societies should sporting bodies feel the need to ban in their arena all team colours other than those of the opposing teams.
In similar vein more mature communities do not have segregation of their children in education as the default position.
Whilst the focus is so often on the lived experience of many in the so-called interface areas, these other forms of polite behaviours are also signs of disfunctionality and unhealthy abnormality in society as a whole.
The issue of a shared future is therefore a question for all of Northern Ireland. It demands a response not just from those whose experience of division is more raw and acute, but also from those who have learned to adapt.
Government cannot confine itself to a response that simply tackles the issue in the local flashpoint areas throughout the country, while ignoring the less visible and painful divisions elsewhere in the community. To do so is to avoid the settled reality of the problem in favour of managing the more intrusive and aggressive forms.
By accepting the existence of division at all levels in NI society and by indicating an intention in word and deed to face it down and in time to eradicate it or transform it, we are all pointing up our determination to normalise this community for future generations. To do otherwise is to be dishonest and to be complicit in the ongoing benign apartheid that afflicts us.
It is with recognition of the persistence and all-pervasiveness of division that we respond to A Shared Future.
We wish to state at the beginning our conviction regarding the education system here, particularly in response to paragraph 4.26 of the document. We will then respond to those more general issues and questions that emerge particularly, though not exclusively, as they pertain to education.
2.
Background to Integrated Education
NICIE. is a charitable body, which exists to
Since its inception in 1989 NICIE. has overseen a tremendous growth in integrated schools from 2,000 pupils in 10 schools fourteen years ago to 16,600 in 50 schools today.
Integrated Education has its modern genesis in the 1989 Education reform Order which in article 64(i) obliges the Department of Education to "encourage and facilitate development of Integrated Education "
In recent times Integrated Education has been mentioned on page 18 of the Belfast/Good Friday agreement. An essential aspect of the reconciliation process is the promotion of a culture of tolerance at every level of society and includes initiatives to facilitate and encourage Integrated Education and mixed housing.
The next few years present us with plenty of challenges not the least of which is how to meet the parental expectations for places in integrated schools. Last year 4 out of the top 5 over-subscribed schools were found in the integrated sector. Whilst this confirms the tremendous demand, it does result in almost 900 pupils receiving negative responses to their requests for places in integrated schools in September 2003.
This heavy demand is unlikely to decline for the foreseeable future. The most recent public opinion survey commissioned this year by NICIE and carried out by Millward Brown Ulster[1], confirms not only a growing awareness of the term "Integrated Education" (95% polled were aware if the concept, up 4% on the previous survey) but also a correct understanding of what it means (91% correctly understand it to mean educating Protestants and Catholics together, 19% up on the first survey in 2000). The survey also indicated that 82% of people polled personally support the concept with 55% saying that the only reason that their children do not attend an integrated school is that there are none in their area or that they are unable to obtain a place.
We have always believed that the visionaries who birthed the movement together with those of us who steward their dream are contributing to the process of reconciliation in Ireland.
Perhaps one of the most telling results in the survey is that 81% of those polled confirmed this belief by declaring that Integrated Education is important (21%) or very important (60%) to peace and reconciliation in N. Ireland.
Given this belief and the obvious demand for places, we must ensure that places are available in integrated schools for all who want them by continuing to balance dreaming with action. To dream alone is not enough unless we are content to remain in the realm of the idealists and become relegated to the "what ifs" of history. To act without a sound vision is to risk fanaticism. A true vision needs to be earthed like a spirit needs a body.
This is not to say that a pluralist form of education is flawed, it is rather to say that we need to challenge a situation where the onus still lies with parents to create a system of shared schools, without any clear strategy to implement what article 69 of the 1989 Education Reform Order calls the "encouragement and facilitation" of Integrated Education from within government circles.
We need to speak up on behalf of the thousands of children who have been unable to access places in integrated schools because schools do not exist or because they are over-subscribed.
Recent research from Dr Paul Connolly has shown that "by the time children reach the age of six, the conflict and community divisions that exist are having a significant impact upon their social worlds so much so that "one in six made sectarian comments without prompting".
Schools may not be the main determinant of all social inter-relations but they have a substantial role in educating children in how to share space on this island as responsible citizens. We owe it to our children to do what we can to create a safe space to understand not only their own tradition but also those of the "other" and increasingly "the others".
In the Statement of Principles to which all Grant Maintained schools adhere, Integrated Education centres itself on the key themes of "child-centred, all ability, co-educational" and offers schools which are "essentially Christian in character"
3.Recommendations
to Department of Education (Point 4.26)
NICIE. believes that true, child-centred education is a vital goal if the people of Northern Ireland are to enjoy a shared future. An educational system, which focuses on the rights and responsibilities of the child, will:
At NICIE we believe that integrated schools are the best way of promoting such a system. The goal for education under A Shared Future should not just be better relationships between children and young people, but an ethos of diversity which pervades the whole sector expressed in pluralism within the school community not just pluralism between schools.
The working party "Towards a Culture of Tolerance
Integrating Education" (TACOTIE) was a journey for all partners involved
as it began to engage with the issues around "promoting a culture of
tolerance" within the school system. It defined it as a “seminal purpose
of the education system". It has, however, in our view, "run into the
sand". The journey begun needs to be brought to a practical level. In this
context, NICIE has always been supportive of enhanced working relationships
between educational partners, but at present these remain few and are at early
stages of development. They do, however, have the potential for greater things.
Perhaps the proposed strategic working group on education, which TACOTIE
proposed, might provide an appropriate forum for this to happen, although at
this stage we must reserve judgement until we see what partners will be at the
table.
Segregated provision has been the default position
for decades and at what cost, whether in schools or teacher training provision.
NICIE has always challenged the assumption that an ethos of cultural diversity,
tolerance and good relations is best taught in segregated teacher training
institutions. By the same token to leave the issue of the provision of places
in integrated schools to parental demand does not constitute a firm development
strategy.
It is our contention that the formal educational system as currently constituted is wasteful of resources and does not optimise the possibilities for improved relations. We recognise however that this structure has been inherited and cannot be changed in the short or medium term. This should not, however, preclude movement towards a more normalised system of diversity such as that which exists in other parts of the United Kingdom and Ireland.
The report proposes that “The Department of Education should lead on co-ordinated action involving schools, teacher training and curricular development to promote better relations among children and young people, including encouraging and facilitating Integrated Education and promoting a culture of tolerance and reconciliation across the whole education system”
We believe that government has a responsibility to do more than simply encourage and facilitate Integrated Education. At present no recognisable strategy exists at Departmental level for the development of Integrated Education.
We recommend therefore that, as a matter of urgency, and in order to make progress towards a shared future, a government appointed body is established to develop a strategy for the development of the integrated schools sector. This body should:
· be cross-departmental;
· involve N.I.C.I.E. as a lead body;
· operate within tight timeframes;
· consult widely with stakeholders;
· recommend to the Department of Education on a course of action.
The Department of Education is therefore responsible for the implementation of strategy, and not its development.
Furthermore, the responsibility for the establishment of integrated schools in a local area currently rests with NICIE and parents in a given locality who are passionate about educating their children in an integrated environment. This places responsibility into the hands of parents for the implementation of a key statutory proposal outlined in this report.
We believe this is unjust, NICIE recommends, therefore that in new community areas or areas of significant community growth, or in areas of community decline and the rationalisation of educational provision, or in the rebuilding of existing schools the Department of Education should facilitate a community audit to ascertain the needs and the desires of the local community in relation of educational provision.
The report also proposes that the Department of Education should lead in co-ordinated action on “enhancing the contribution of teacher education to the promotion of tolerance and reconciliation”.
In common with the education system overall the current structure for teacher training, involving up to four sites and providers, leads to over-provision of training, duplication of resources and variations in quality. Strategies for rationalising the teacher education system are beyond the scope of this report but NICIE can however make proposals to improve teacher training in the area of diversity and community relations.
NICIE recommends therefore:
· the establishment of a formal module on teaching in a diverse environment run under the auspices of NICIE and accredited by one of the local universities.
· the establishment of centres of excellence on specific sites in particular subject areas, recognising the peculiar specialisations of the particular training centres;
· specialist training in dealing with diversity, community relations and citizenship, utilising the skills and resources of the informal education sector, thereby providing all teachers with an established skills base for handling community relations issues. These modules should be compulsory and assessed;
· the creation of options for all teachers to do teaching practice in a school of the opposite culture and/or in integrated schools;
· compulsory in-service training in issues of diversity and the education service’s response to civil unrest;
· compulsory in-service training for senior staff and school governors in areas such as managing a shared institution.
Paragraph 4.26 also recommends that the good relations dimension of citizenship should be placed at the core of the new school curriculum. NICIE agrees that the effective teaching of citizenship is central to the development of good relations. This teaching should be experiential as well as fact-based and should be incorporated into the whole ethos of the school, from teacher education, management and the operation of the Boards of Governors.
4.
Response to Consultation Questions
4.1 Do you agree that the overall aim for policy must be a shared but pluralist society?
We find it unusual that the wording in the body of the document (para 2.4) is different from the wording of the question in section 2 (above). We are concerned about the call to sign up to an aim in which the language used is so imprecise. A shared but pluralist society need not deliver a society, which is marked by a culture of tolerance and respect for diversity. Instead difference can be corralled into isolated, single-identity communities with an uneasy peace existing between the groups.
If the aim instead is for a society in which integration and tolerance are watchwords, whilst also allowing those who wish to live in single-identity communities to do so, then such a shared and pluralist society would be desirable.
This however is not clear from the document.
Until the language, and specifically the difference in phraseology highlighted above are clarified it is difficult to subscribe enthusiastically to the aim.
Furthermore, the frequent reference in the document to interface communities leads to the impression that the focus of government policy should be on areas of more direct conflict. This is to ignore the more subtle forms of division and sectarianism, which have become the practised manners of those communities with the material resources to buy themselves a measure of geographical distance from violence.
The either/or language of paragraphs 2.2 and 2.3 is not helpful. It is our contention that the approaches are mutually supportive.
True reconciliation and inclusion has not been achieved if all we attain is an avoidance of offence. Nor has much been achieved that is lasting if all we succeed in doing is maintaining an uneasy peace in interface areas.
If public policy is tailored appropriately for both local responses as well as general change then we would support more rapid progress towards a shared and pluralist society, subject to the resolution of language difficulties outlined above.
4.2 What do you think should be the main policy aims and outcomes, which should drive the new approach to promoting good relations?
The main focus of NICIE. is of course on education and our main concerns have been highlighted above in sections 2 and 3 of this response. We are aware however, that other dimensions of public policy have an impact on our sector.
We believe it is essential that housing policy should encourage and facilitate mixed housing development. Such a policy should also encourage and facilitate mixed tenure housing developments where people of all backgrounds, faiths and socio-economic groups can live in peace and contribute positively to the development of community.
Public policy in such areas as employment law, benefits, housing, education and health etc. must aim for more than mere neutrality and instead move towards dialogue and real engagement where, as the report says, people can learn, live, work and play together.
It must also be acknowledged that community integration is not limited to integration of Catholics and Protestants or Nationalists and Unionists. We note, for instance, that A Shared Future does not comment in depth on issues of racial integration, (for instance.) Public policy must not focus so exclusively on matters of the traditional divisions in Northern Ireland that we lose sight of other changes that are emerging in our community.
Provision of public service must be a balance between needs and resources rather than being duplicated along sectarian lines.
4.3 What do you think ought to be the principles upon which a new approach to promoting good relations in Northern Ireland should be based?
NICIE believes that government policy on good relations should be imaginative and bold and supported by visionary leadership at all levels of society, especially at the level of political leadership.
As a first step it is essential that we are encouraged to make an honest assessment of the true extent of the problem. The development of public policy must then be long-term, co-ordinated and cross departmental.
Specific actions must be targeted at local areas, which bear the brunt of the more overt conflict. At the same time government cannot be released from the responsibility to acknowledge that the local expressions of violent behaviour are the symptoms of a widespread malaise in society rather than purely expressions of local frustration.
We endorse the fundamental principles outlined in the report. And whilst we welcome the intimation of targeted responses to division at local and community level, we also endorse strongly the aspiration of paragraph 3.8, which recognises the complementary actions promoting good relations in society as a whole. We would urge policy makers to avoid the temptation to see matters of community division as purely a local community phenomenon.
4.4 What action do you think central government should take to improve relations?
The political class of Northern Ireland has a huge role to play in promoting good relations. To move from an inward-looking approach to political life to one, which is less suspicious, would contribute enormously to political and community stability both of which are necessary steps on the road to a normalised society.
The aspiration to establish good relations is more than a mild form of acceptance of others, but the ability or skill to understand, listen, respect and honour others. It is incumbent that our political leaders engage seriously in the development of good relations at political level and that political debate is marked less by sectarian overtones and more by honest respect for political opponents.
Improving relations cannot, and indeed should not, be abdicated to politicians or civil servants since we are all culpable and in some way responsible for how civic society works. We feel that the best forum to facilitate ongoing debate, inform future policy and challenge and encourage communities towards a shared future needs to lie outside government. Such an organisation is already in existence in the form of the Community Relations Council. We would be of the view that this body should continue and play a key role in the development and implementation of strategy.
5.
Conclusion – The Way Forward
The road to genuine integration in Northern Ireland will be a long one and short-term, quick fix approaches will not serve us well. NICIE welcomes the report and the opportunity to respond and urges government to move quickly to establish public confidence in its desire to tackle the issues outlined.
We believe that integrated schools are essential to the development of a society marked by tolerance and interdependence. We are committed to playing our part in the development of effective strategies for achieving the ultimate goal of a peaceful and interdependent community marked by a celebration of cultural and religious diversity as well as providing safe space for dissent.
Ray Mullan
Chair of NICIE Board of Directors
[1] Public Opinion Survey Integrated Education in N. Ireland June 2003. Prepared by Millward Brown Ulster (N.I Omnibus) prepared for NICIE