1 February 2011 Burning issues A research report on bonfires based on a community survey across the Omagh, Strabane and Derry~Londonderry areas and a wider audit of good practice. 2 1 2 3 February 2011 Burning issues 4 Table of Contents 1. 1.1 Introduction 7 Executive 1.2 Project Aims, Targets, Outcomes and Methodology 7 1.3 Strategic and Policy Context 8 summary 1.4 Community Survey 10 1.5 Action Plans 11 1.6 Best Practice across Northern Ireland 12 1.7 Conclusions and Recommendations 13 2. 2.1 Introduction 15 T erms 2.2 Terms of Reference 15 2.3 Methodology 17 of Reference 2.4 Format of Report 17 and Methodology 2.5 Acknowledgements 17 3. 3.1 Introduction 19 North West PEACE III Action Plan Strategic 3.2 19 3.3 The Need for Action in the North West 21 and Policy 3.4 Burning Issues 25 Context 3.5 Legislative Context 27 5 4. 4.1 Introduction 33 Best Practice 4.2 Ballymoney Borough Council – Bonfire Incentive Programme 33 across NI 4.3 Belfast City Council – Bonfire Management Programme 38 4.4 Coleraine Borough Council – Safer Bonfire Initiative 48 4.5 Down District Council – Beacons 49 4.6 Ards Borough Council – Local Bonfire Committee and Bonfire Policy 51 4.7 Best Practice Elsewhere 57 4.8 Conclusions 60 5. 5.1 Introduction 63 Community 5.2 Key results 64 5.3 Summary of Key Findings 108 Survey 6. 6.1 Introduction 111 6.2 Derry~Londonderry Area 112 Action Plans 6.3 Omagh Area 143 6.4 Strabane Area 161 7. 7.1 Overview of Key Findings 171 Conclusions 7.2 Conclusions and Recommendations 174 and Recommendations 6 7 1. Executive summary 1.1 In June 2010, FGS McClure Watters Ireland, and to formulate an action Introduction was commissioned by Derry City plan which addresses concerns Council (DCC) on behalf of the NW identified across the North West Peace III Cluster, to undertake a Cluster (Derry City Council area, community based survey of issues Omagh District Council area and around bonfires, including an audit Strabane District Council area). of good practice across Northern 1.2 The aims of the project are to: Project Aims, • Establish an understanding of community attitudes to bonfires where Targets, bonfires are located across the three Council areas Outcomes • Develop a community based strategy/action plan for bonfire management and alternative activities across the three Council areas and Methodology in line with best practice. • Where possible, develop inclusive alternative celebrations • Promote a greater understanding and awareness of the cultural tradition of the events that are celebrated by the bonfire ritual. The targets of the project are to: • Involve young people in the process (up to 40%), particularly those engaged in bonfire construction and organisation. • A target of 10 – 15 communities where bonfires are held will have actively engaged in specific area focus groups contributing to the research report. • A target of 200 questionnaires will have been returned voicing opinion on bonfires • Publish findings of consultation and agree community action plan for each council area • Reduction in number of sectarian crime and incidents associated with bonfires • Develop robust communications strategy ensuring clarity over the purpose of the exercise. • Evaluate and equality proof findings/recommendations of survey. 8 The outcomes of the project are as follows: • Quality baseline research into issues and attitudes around bonfires will have been completed and published in the form of a report and action plan with relevance across the 3 council areas. • Understanding of attitudes to bonfires within and between communities. • Increased recognition and respect for own and others culture. • Better management of bonfires and an emphasis on a phased move away from bonfires in favour of alternatives and diversionary activities. • Deliverable and sustainable community based action plan. • The dialogue created by this piece of work will raise people’s self- esteem and through giving them a voice regarding their attitudes to bonfires will build community spirit and increase social interaction. • The resulting action plan will create greater levels of participation in shared community activities and give people from the communities an input into these activities. Methodology The methodology was agreed with the NW Cluster Group and involved: • Desk research on the strategic, legislative and policy context; • Consultation including: » 1-to-1 interviews with strategic stakeholders, including PSNI, NIFRS, Local Councils and Community Safety Partnership staff; » 15 focus groups with individuals that have an interest / involvement in bonfires (9 in Derry~Londonderry area, 4 in Omagh area and 2 in Strabane area). These related to the bonfire sites agreed with Steering Group; and » 208 completed surveys with individuals that have an interest / involvement in bonfires; • Benchmarking of other initiatives and programmes aimed at managing bonfires; • Analysis of the findings and identification of action plans; and • Drafting and Finalisation of the Report. 1.3 There are a number of strategies, policies and legislative requirements Strategic which set the context within which bonfires operate. and Policy North West PEACE III Action Plan Context The overall aim of the PEACE III Programme is “to reinforce progress towards a peaceful and stable society and to promote reconciliation”. Supporting this aim are the following two strategic priorities: • Priority 1 – Reconciling communities; and • Priority 2 – Contributing toward a shared society. 9 The NW Peace & Reconciliation Action Plan provides a framework through which funding has been secured under Priority 1 Theme 1 to challenge attitudes towards sectarianism and racism and to support conflict resolution and mediation at the local community level. Six strategic priorities have been identified for the North West and a total European Regional Development Fund (ERDF) budget of £4.733 million has been approved by the Special EU Programmes Body (SEUPB) to help deliver the range of indicative actions identified in the local action plan. Priority 1 ‘Moving towards Acceptance of Cultural Identity and Inclusive Celebration’ forms the basis for this project. Theme 1.1 Building Positive Relations at the Local Level aims “to challenge attitudes towards sectarianism and racism and support conflict resolution and mediation at the local community level. The Priority also aims to establish meaningful cross-community and cross-border initiatives that will improve trust and tolerance, and reduce levels of sectarianism and racism”. The Need for Action in the North West. In light of factors such as the high levels of disadvantage and the impact of the Troubles on the three Council areas, it is clear that initiatives such as the ‘Burning Issues’ project are needed to create greater levels of participation and understanding of community issues, increase social interaction and give people from the local communities an input into the way forward. ‘Burning Issues’ Bonfires are part of the social and cultural life in the North West and Northern Ireland; and each of the bonfires is celebrated differently in terms of the participants involved, the level of organisation, management, the support from the community and the impacts that its existence have within the local and wider area. Legislative Context There are a number of legislative controls which apply directly to bonfires; Waste Management, Road Safety, Clean Air and Public Health. In general, the landowner and those depositing the material to be burnt and lighting the fire have ultimate responsibility for the bonfire. Enforcement of the above legal provisions varies depending upon the actual location of the bonfire and the nature of the combustible material used. 10 Table 1.1: Burning Issues – Legislative Controls Bonfire Location Responsible Body Enforcing Body Legislation Public Road Roads Service Roads Service Roads Order Police Service Roads Order District Council Litter Order WCL Order NIEA WCL Order Private Land Landowner District Council WCL Order NIEA WCL Order Council Land District Council District Council WCL Order NIEA WCL Order NIHE Land NIHE District Council WCL Order NIEA WCL Order Note: Northern Ireland Housing Executive (NIHE); Northern Ireland Environment Agency (NIEA); Waste and Contaminated Land (WCL) Order. Source: Bonfires – A Report by the Interagency Working Group on Bonfires (2004) 1.4 The research involved a community other comments / views around Community survey and site specific focus bonfires. groups with those living or working A total of 208 respondents Survey near bonfire sites. A questionnaire completed the survey. was designed to collect the Respondents were from across views of the wider community on the age groups, different socio- bonfires across sites in the North economic levels, and from both West. It captured information the Protestant and Catholic about the respondent’s profile; communities. The responses their involvement in bonfires; provide an example of the different knowledge and experiences of perspectives and opinions on bonfires; awareness of issues bonfires and their impact on around bonfires; impacts the local communities in the within and across communities; North West. suggestions for improvement and The key findings of the survey are as follows: • Young people are more involved in bonfires (gathering materials and building was an activity often identified as a job for young males aged 10-14) than the older age ranges; the young people tend to have a more positive opinion of bonfires and are less aware of concerns within the local community. 11 • There were mixed responses on the impact of bonfires, mainly split by age ranges. Younger people tended to feel that bonfires were a ‘social gathering’ (54% of respondents). Others felt they had a negative impact and saw them as a source of ‘anti-social behaviour’ (47%), an opportunity to encourage ‘substance abuse’ (44%) and ‘illegal dumping’ (43%). Other specific concerns raised by respondents relating to the bonfire events included air pollution, noise and the residual mess, and damage to property. • 42% of respondents noted that bonfires have a negative impact on the relations between Protestant and Catholic communities.