Burning Issues

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 Terms 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. However, 38% of respondents said bonfires have no impact. • Older people and parents were found to have the most concern about bonfires. • 69% of the respondents believe that Local Councils are responsible for cleaning up after the bonfire, but they also highlighted that people who organise the bonfire should be required to clean up the site (63%), as well as cover the cost of cleaning up (55%) and insuring the event (55%). Analysis of these views highlighted that younger people tended not to know who was responsible for the bonfire and generally showed little regard for health and safety issues surrounding the bonfire. • The survey responses highlighted, that those in older age groups had more concerns about bonfires than those in the younger age groups. Many young people wanted the bonfires to remain as they are at present and identified few or no ideas for improvement. Other respondents were split either by, seeking an alternative to the bonfire (and therefore closing the existing site) or, running a properly controlled and managed bonfire on the current site. The respondents said they would like the authorities to establish a cultural fun day (39%) and others wished to have a better managed bonfire site (32%). 1.5 An Action Plan, for each of the 15 bonfire sites agreed with the Project Action Plans Steering Group, has been developed. These plans were developed based on the overall survey findings, but also specific site information and research, as follows: • Bonfire site profile (location, profile of the area, date of bonfire, information on clean up costs where these existed); • Land ownership (responsibility / liability); and • Community views on the bonfires and their impacts (survey findings and focus groups). The focus group discussions covered the extent of community support for the bonfire (the evidence of this where it existed); the extent to which there was community leadership/ management of the bonfire; the extent of any anti-social behaviour or problems with the bonfire and options for the way ahead. Section 6 presents the individual Action Plans for each of the bonfire sites. 12

1.6 There has been a wide variety of management practices used by Best Practice statutory bodies to control/ manage bonfires. The experience of five Councils across Northern Ireland was reviewed: across Northern Ireland • Ballymoney Borough Council –‘Safer Bonfire Competition’ and ‘Bonfire Incentive Programme’; • Belfast City Council – Bonfire Management Programme; • Coleraine Borough Council – Safer Bonfire Initiative; • Down District Council – Beacons; and • Ards Borough Council – Local Bonfire Committee and Bonfire Policy. In addition, the approaches taken in Manchester and Cork: Safe4Autumn Initiative in Manchester and family-friendly bonfire celebrations in Cork were also considered. Although the practices vary across the research sites, there are a number of key themes: • Community Buy-in to the Solution: Community engagement is crucial to the development of any meaningful solution. Bonfire committees which are representative of the community are used in many areas to ensure that all sectors of the local community including young people are represented. To be sustainable any actions that are contemplated must be led by local people. • Understanding: There was a need to understand the level of real support within the local communities / neighbourhoods for the bonfire. This often required local surveys conducted by local people to ensure that all views were represented; • Long Term: The process requires the building of relationships and trust between people in local communities/ neighbourhoods and also between them and the other stakeholders. This can be slow and the process can only move at the pace the local communities want it to move at. There is no magic solution to managing bonfires and any initiative requires a long-term framework and continual update and monitoring of its progress. The results and impacts are small and slow, but are to be based on building in small steps. • Multi-Agency: The need for a multi-agency approach, including local authorities and bodies (police services; fire service, local authorities, roads representatives etc.) and key stakeholders within the local communities such as young people representatives, parents and guardians of the young people and women; • Sustainability: Any action or alternative should be sustainable and funding is particularly/ increasingly difficult to obtain; and • Benefits: Benefits associated with bonfire management schemes are difficult to value as a wide number of agencies absorb the costs of bonfires including emergency services, roads service, courts service, NIEA and local councils. The greatest improvement in bonfire management has been achieved through extensive ongoing engagement with local representatives over a prolonged period of time. 13

1.7 The analysis of the strategic and policy context, survey results and Conclusions focus groups findings, benchmarking exercise and interviews with stakeholders can be summarised as follows: and Recommendations • Community Leadership: Communities should identify representatives that are willing and able to provide the leadership required to take forward actions on their local bonfire. It is recommended that any actions that are taken at a local level should be led by the community and driven at a local level or else they will not be sustainable. • Policy: Each Council should develop a Bonfire Policy, based on the findings of this report regarding their Council area. • Multi-departmental Input: It is recognised that, in certain areas, a considerable amount of work is already underway between Community Relations (CR) staff and/or Community Safety Partnership (CSP), Environmental Health, Technical Services and community representatives; as such there is much good practice that can be shared across community groups by these staff. It is key that communities develop good working relationships with Council staff, in order to manage bonfire situations. Whilst Councils’ CR staff and CSP staff will be key to this engagement process a cross-departmental approach will be required to deal with all the issues associated with bonfires, such as environmental and health and safety issues. It is also likely that additional input from other statutory agencies, such as NIHE, NIEA and PSNI would also be required to address all issues associated with bonfires and to fully implement any bonfire policies. • Bonfire Closures: Where bonfires are on council sites and where communities are not providing leadership on bonfires and are unwilling to do so, the Council should take steps to close the bonfire down based on health & safety and environmental reasons. In the case where the site is owned by someone other than the Council, the Council should advise landowners of their obligations under law. • Bonfire Management Schemes: It is recommended that Councils wishing to support bonfires in specific areas under their policy set up a Bonfire Management scheme. It should be available for those Communities that wish to lead and deliver on a well-managed/ controlled bonfire. Financial support provided by the Councils should be conditional on delivery of key standards of operation for example: no wood collected before a certain time; bonfire situated on safe site; insurance to be taken out; no tyres on the bonfire; no emblems/ flags on the bonfire and evidence of adult supervision on bonfire night. • Evidence of Community Support for Bonfire: Where the level of support for a bonfire is not clear, it is important the community should undertake a community survey to define the actual views of the whole community. 14 15

2. Terms of Reference and Methodology

2.1 In June 2010, FGS McClure Watters Cluster (Derry City Council area, Introduction was commissioned by Derry City Omagh District Council area and Council (DCC) to undertake a Strabane District Council area). community based survey of issues This section sets out the terms around bonfires, including an audit of reference for the engagement of good practice across Northern and outlines the methodology Ireland, and to formulate an action used to undertake this study and plan which addresses concerns action plan. identified across the North West

2.2 The aims of the project are to: Terms • Establish an understanding of community attitudes to bonfires where of Reference bonfires are located across the three Council areas • Develop a community based strategy/action plan for bonfire management and alternative activities across the three Council areas in line with best practice. • Where possible, develop inclusive alternative celebrations which will incorporate all the cultural traditions of the celebration without the attendant historical problems associated with the bonfire event. • 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 16

• 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.

2.3 Our approach to this project involved: Methodology • Research on bonfire management across Northern Ireland and overseas; • 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 the 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; and • Analysis of the findings and identification of action plans.

2.4 Format of Report The remainder of this report is structured as follows:

Section 3 Strategic & Policy Context

Section 4 Best Practice

Section 5 Community Survey

Section 6 Action Plans

Section 7 Conclusions and Recommendations

2.5 The Research Team would like for providing expert advice and Acknowledgements to thank the Project Steering experience. Group members (Derry City Many thanks to the youth Council, Omagh District Council, leaders, community groups, Strabane District Council) for Belfast City Council, Ballymoney being available for meetings Borough Council, Coleraine and providing access to the Borough Council, Down District information that was required for Council, Ards District Council, the completion of this report. survey respondents, other key In addition, we would like to stakeholders and individuals who express gratitude to John Bell were interviewed during the course (Institute for Conflict Research) of this report. 18 19

3. Strategic and Policy Context

3.1 The following paragraphs provide This section also provides a an overview of the socio-economic Introduction summary of the socio-economic and policy background in which circumstances of the area as a the bonfires are taking place. There background to the need for a are a number of programmes and strategy to manage bonfires. It initiatives in the area aimed at is also important to consider the improving community relations, legislation that would apply to not least the North West PEACE III bonfires and who is responsible for Action Plan. enforcing this legislation.

3.2 3.2.1 Introduction North West The overall aim of the PEACE III Programme is “to reinforce progress PEACE III towards a peaceful and stable society and to promote reconciliation”. Action Plan Supporting this aim are the following two strategic priorities: • Priority 1 – Reconciling communities; and • Priority 2 – Contributing toward a shared society. 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. 20

Detailed below are the six strategic priorities: • Strategic Priority 1: Moving Towards Acceptance of Cultural Identity and Inclusive Celebration. • Strategic Priority 2: Influencing Young People’s Attitudes at an Early Stage through Appropriate Media. • Strategic Priority 3: Promoting Shared Use of our Local Facilities. • Strategic Priority 4: Assisting Protestant Participation, especially in disadvantaged urban and rural areas. • Strategic Priority 5: Promoting the Inclusion of Ethnic Minorities and Other Marginalised People and Acceptance of Multiculturalism. • Strategic Priority 6: Addressing the Needs of Those Who Have Been Adversely Affected by the Conflict The NW Peace III Partnership invited its partners, Derry City Council (DCC), Omagh District Council (ODC) and Strabane District Council (SDC), to submit a proposal to facilitate and support dialogue/ projects/ programmes as part of Strategic Priority I of Moving Towards Acceptance of Cultural Identity and Inclusive Celebration by the development of protocols around flags and celebrations, bonfires and other community safety issues.

3.2.2 Strategic Priority 1: Moving Towards Acceptance of Cultural Identity and Inclusive Celebration

It is Priority 1 that forms the basis for this project and in particular Area 1, Building Positive relations at the local level. To foster this aim, SEUPB engaged extensively with Local Authorities in the eligible region to put in place mechanisms to produce local action plans in accordance with PEACE III requirements. The PEACE III operational Programme made provision for children and young people to be supported in Priority 1. Under Priority 1, children and young people will be supported to encourage integration in society, extend the concept of formal citizenship, address issues of sectarianism and racism, and work towards shared identity and cultural diversity. As such it was important to include young people in the consultation process, particularly those engaged in the bonfire construction and organisation. 21

Along with 5 other cluster areas in Northern Ireland, Derry City Council, Omagh District Council and Strabane District Council formed the North West Peace III Partnership (with Derry City Council as Lead Partner), and through utilising Council expertise and an extensive consultation process developed a Peace III Peace and Reconciliation Action Plan (“Action Plan”). The Partnership drafted the following vision for the plan: To facilitate progress towards a community which by 2015 will have: • Integrated public services and facilities, people living and learning together and all areas perceived as accessible to everyone; • A shared understanding of the value of different cultural identities, positive and acceptable way to commemorate and responsible use of symbolism; • Substantially less sectarian, racist and homophobic crime; • A more economically active community with substantial reductions in youth unemployment; • A more stable political climate with Councils adopting principles and practices in support of good relations throughout their work; • First class sporting achievement of all kinds is recognised by all communities and has widespread participation; and • Strong cross-border relationships. 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’.

3.3 The Cluster area exhibits high people, indeed the recent The Need levels of disadvantage with economic downturn is mooted to Strabane District Council the impact greatest on under 25’s, for Action second most deprived Council area with up to 25% of this group in the North West in NI according to the Multiple reported to be at risk from Deprivation Measure (MDM) 2010 unemployment. The focus of the commissioned by NISRA (1st in Strategic priority on meeting the MDM 2005), Derry City Council the needs of disadvantaged young 3rd (2nd in MDM 2005) and Omagh people and to tackle the causes of District Council area the 17th (7th disaffection is therefore crucial. in MDM 2005). The statistics in Table 3.1 show The impact of these levels of the levels of disadvantage disadvantage is felt particularly recorded throughout the North strongly by children and young West Cluster area. 22

Table 3.1: Key Statistics of the North West Cluster area (Derry~Londonderry, Omagh and Strabane)

Key Statistics Derry ~ L’Derry Omagh Strabane NI

Religious split (Catholic/ 75.4/ 23.2 69.1/ 29.7 66.2/ 33.3 43.8/ 51.3 Protestant) (Census 2001)

Teenage birth rate* (2008) 18.7 8.0 14.4 16.6

% of post primary Year 12 pupils achieving no GCSE 2.6 2.5 1.9 2.1 (2007)

Free school meal 29.5 16.6 25.2 16.5 entitlement (2009)

Lone parent households with dependent children 12.7 7.6 8.8 8.1 households (%) (Census 2001)

Children in income support 35.9 17.8 27.5 20.0 households (2008)

Households in relative poverty (Equivalised (%) 19.6 18.1 18.9 17.0 (2003/05)

Total No. of Offences 7,630 2,458 1,698 110,094 Recorded (2008)

No. of anti-social behaviour 5,738 1,685 1,482 87,159 incidents (2008)

No. of hate incidents (racist 42 17 1 990 motivated) recorded (2008)

No. of hate incidents (sectarian motivated) 19 18 15 1,595 recorded (2008)

No. of hate incidents (homophobic motivated) 2 3 3 179 recorded (2008)

Source: various from www.ninis.nisra.gov.uk 23

The following table shows specific statistics relating to crime and justice in the NW area, including anti-social behaviour, hate incidents and crimes recorded, number of offences, recorded crimes with a domestic abuse motivation, and number of offences by class.

Table 3.2: Total Anti-Social Behaviour Incidents Recorded 2008/2009 by Local Government District

LGD Mid Year Anti-Social Total % of Total Population Behaviours Anti-Social Anti-Social Estimates Incidents Behaviour Behaviour 2008 – All per 1,000 Incidents Incidents in NI Ages population Derry~Londonderry 109,097 52.6 5,738 6.6%

Omagh 52,115 32.3 1,685 1.9%

Strabane 39,614 37.4 1,482 1.7%

NW Total 200,826 44.3 8,905 10.2%

Northern Ireland 1,775,003 49.1 87,159 100.0%

Source: NISRA – NINIS (2008/09)

The Impact of the Troubles on the Cluster Area It is widely understood that the North West area has been heavily affected by the Troubles in Northern Ireland. A number of key indicators are: • High death rates recorded throughout the area per capita, with Strabane and Derry~Londonderry ranked 5th and 6th respectively in terms of death rate per capita reported in the Cost of the Troubles report1. The impact of the division is still evident as from 1997 there have been 155 deaths resulting from the security situation in the North West area; • The North West has experienced some high profile atrocities including the Omagh Bombing, Bloody Sunday and the Claudy Bombing. The legacy of these, along with other incidents, have made progress to a Shared Future more difficult. • Over the period 2003/07 there were 141 sectarian incidents recorded and over 365 offences recorded – these were serious incidents including (2 tragic deaths, 55 shootings and 20 bombings)2; and • There are three interface areas in the North West (all located in the Derry City Council area). In 2006/07 there were 282 recorded incidents in this area2.

1 Institute for Conflict Research (1999): The Cost of Troubles Study. 2 North West Peace III Partnership (2008): Peace and Reconciliation Action Plan. 24

The information presented above indicates that the area has suffered and continues to live with the effects of the conflict in NI, the impact that this has had on children and young people throughout NI and in the Northwest in particular is examined further below: The importance of Young People in creating a peaceful and stable society The 2008 NI Life and Times survey3 provided an analysis of responses by age, and in particular the 18-25 year old age group provides some useful insights. The results show that young people’s view on community relations in NI are less positive than those held by the overall population. A number of key points of note are that: • 6% of 18-25 year olds feel that relations between Protestant and Catholics are worse now than they were 5 years ago, compared to only 2% of the overall population; • 8% of 18-25 year olds expect relations to get worse over the next 5 years compared to only 3% of the entire population; • 23% of 18-25 year olds prefer to live in a neighbourhood of people of their own religion compared to only 15% of the entire population; • 15% of 18-25 year olds reported feeling intimidated by murals, kerb paintings and flags compared to 13% of the entire population; and • 4% of 18-25 year olds are in favour of more segregation rather than less segregation compared to only 1% of the overall population.

The survey findings highlight that the North West area faces a number of challenges based on years of troubles and fairly engrained attitudes. Within this context there are a number of major bonfire events that happen throughout the area. These bonfires can be an opportunity for celebration by one community whilst raising tensions in other communities. The stakeholders in the NW have a number of significant programmes and supports underway at present to deal with these issues, through existing statutory provision and the Peace III programme. However, all of this work is ongoing and involves significant engagement with local communities. The issues associated with bonfires are similar in that they require significant engagement and relationship building at a local level to offset the suspicion of government telling locals what to do and especially any suggestion that might be seen to impact negatively on people’s traditions and culture. To run a successful engagement with local communities it is necessary to understand where the culture and tradition of bonfires has evolved from, as summarised in the following paragraphs.

3 ARK (2008): Northern Ireland Life and Times Survey. 25

3.4 Some members from Unionist and Bonfires are also commonplace Burning Issues Loyalist communities associate at Halloween (31st October), in themselves with bonfires on contrast with other parts of the UK the eleventh of July, celebrating which would see the failure of the the victory of William of Orange Gunpowder Plot on the Houses at the Battle of the Boyne in of Parliament by Guy Fawkes and 1690. They also commemorate his co-conspirators as reason to celebrate with a bonfire on 5th the Siege of Derry with bonfires November each year. during the month of August, Some people from local which traditionally culminated in communities (usually young males) a ceremonial burning of an effigy collect material for several weeks of Lundy in December (although (even months) before fires are due December bonfires have not to be lit, and guarding the bonfire occurred for many years). Although (and bonfire material) becomes a all of these events occurred social activity in itself. There are hundreds of years ago, the custom various view points on bonfires; of bonfire building and burning some see them as a positive is still prominent within their expression of cultural identity; communities today. The 11th July some people are concerned about bonfires are the most common in the environmental or health Northern Ireland. and safety issues associated Some members of the Catholic with bonfires, whilst others are / Nationalist / Republican concerned about the sectarian community also use bonfires to symbolism associated with them. both celebrate and commemorate Where there is trouble and anti- social behaviour at bonfires historical events, the most well- alcohol is often involved. known being around the Feast of There is a growing recognition of the Assumption of the Blessed the problematic nature of some Virgin Mary and the anniversary of the long-established bonfires of internment, both of which take because of their socio-economic, place in August. safety and environmental impact.

The key issues are: • Flags, emblems and offensive effigies representing the ‘other’ tradition being burnt, creating community tensions; • Violence and arrests followed the premature lighting of a bonfire; • Damage to property (neighbouring buildings); • Damage to road and open space surfaces; • Injury to spectators; • Unsightly accumulation of bonfire material in the weeks leading up to the event (materials are often strewn over open areas until the bonfire is ready to be lit to prevent it from being lit early); • Injuries to young people “guarding” material as a result of playing with/on materials and lighting pre-fires; 26

• Disposal/ clean up of remains and surrounding area; • Blockage of roads until clean up affected; • Drunken and anti-social behaviour of spectators; • Door to door collections for the bonfire perceived as intimidating by some residents; • Pollution of the environment (by burning tyres, furniture and other household items); • Damage to trees by collectors scavenging for material; • Theft of property to burn on the bonfire (e.g. wooden pallets and tyres); • Storage of material: indoor – fire hazard / outdoor – environmental image / security of material; • Type of materials being burnt (e.g. toxicity); • Size of bonfires – unstable; • Injury to those in control of bonfire; • Fires getting out of control and spreading to houses; and • The mess left by bonfires and disputes about clear-up responsibilities. In September 2009, the Northern Ireland Assembly reported that clearing up Northern Ireland’s bonfires cost over £200,000, plus further £117,000 spent by Councils and Roads Service to clear up and restore roads. Despite efforts by a number of agencies including Councils and community organisations, bonfires can heighten sectarian tensions particularly during the summer months and along interfaces. As well as summer bonfires a number of District Council areas face problems with Halloween bonfires. In the North West there is a varying pattern of traditions in the lighting of Bonfires: • In the Derry City Council area bonfires are lit on the 11th July, in early August in connection with the Relief of Derry celebrations and around the Feast of the Assumption and internment (15th of August). At least 15 bonfires are usually erected in the following areas Irish Street, The Fountain, Tullyally, Drumahoe, Newbuildings, Clooney Estate, Caw, Currynierin, Lecky Road, Creggan and Gobnascale. • In the Omagh District Council area there is one 11th July bonfire at Hospital Road and Halloween bonfires in Strathroy, Lisanelly, O’ Kane Park, Shandon Park, Fintona and Mullaghmore. • In the Strabane District Council area there are bonfires on the 11th July and also at Halloween, although the site of the bonfire tends to less consistent than in the other council areas, typically there are bonfires in Fountain Street, Ballycolman estate, Castlederg and Donemana. 27

3.5 There are a number of legal a wide range of factors including: Legislative provisions which directly relate the materials burnt, the actual to bonfires in Northern Ireland, location or site of the bonfire, the Context including waste and pollution persons responsible for dumping legislation. Public bodies such as and igniting the materials, local councils and the Northern defences under the legislation Ireland Environment Agency (NIEA) and the availability of evidence. have legislative responsibility to The following paragraphs provide control bonfires. The extent to a summary of the main legislative which these bodies are able to issues associated with bonfires. exercise this control depends on

3.5.1 Air Pollution Legislation

The primary legislation in respect Under Article 23, where a nuisance of controlling air pollution arising is caused (or likely to be caused) from the burning of bonfires is by smoke emitted from premises the Clean Air (NI) Order 1981. This (other than from a chimney), then Order offers two approaches to action can be taken under the dealing with this issue, Articles Public Health (Ireland) Act 1878 for 4 and 23. Article 4 prohibits the ‘statutory nuisance’. In this case emission of dark smoke from the person responsible can be industrial or trade premises or either the land owner or the person other premises on which waste by whose act, default or sufferance originating from a trade source is the nuisance arises or continues. burnt. The person responsible for Provision also exists under the complying with this provision is the legislation for action in default to occupier of the premises. abate the nuisance.

3.5.2 Waste Legislation

There are two pieces of waste legislation that are relevant to bonfires, the Litter Order and the Waste and Contaminated Land (WCL) Order.

The Litter (NI) Order 1994 Under Article 3 it is an offence for However, it is a defence if the any person to “throw down, drop deposit of the material was or otherwise deposits in, into or authorised by law or done with from any place open to the air, the consent of the owner or person and leave, anything whatsoever in having control of the place where such circumstances as to cause, the deposit occurred. Therefore, it or contribute to, or tend to lead is permitted if the land owner has to, the defacement by litter of any given permission for the material such place”. This would apply to to be there. the amassing of bonfire material. 28

The Waste and Contaminated Land (NI) Order 1997 Article 4 of the Waste and Contaminated Land Order (NI) 1997 makes provision for several offences associated with the illegal deposit of waste as follows: • Deposit of controlled waste on any land unless a waste management licence authorising the deposit is in force and the deposit is in accordance with the licence; • Treatment, keeping or disposal of controlled waste in or on any land except in accordance with a waste management licence; and • Treatment, keeping or disposal of controlled waste in a manner likely to cause pollution of the environment or harm to human health. A number of defences are prescribed for persons charged with offences. The 1997 Order also contains offences for breaches of Duty of Care (Article 5(8)), as described in the Controlled Waste (Duty of Care) Regulations (NI) 2002. These would make the following examples offences: • Waste producers allowing non-registered carriers to transport materials; • Allowing waste to be placed on an unlicensed site; and • Allowing waste to escape from control (e.g. tyres being left outside the premises of distributors). Controlled waste is a general term that covers a wide range of household and industrial waste; it would include materials that are burnt in bonfires such as tyres and mattresses. Article 27(2) allows the NIEA to direct any person keeping controlled waste on any land to dispose of it in a specified manner. It is only used in exceptional circumstances and may not be so useful for the removal of unlawfully deposited waste on bonfire sites. Article 28 states that if any controlled waste is deposited in or on any land, the district council may require the occupier or owner to do either or both of the following: • Remove the waste with a minimum of 21 days; and • Take steps with a view to eliminating or reducing the consequences of the deposit of the waste. If convicted, the person may appeal and on appeal the Court shall quash the requirement if it is satisfied that the appellant neither deposited nor knowingly caused nor knowingly permitted the deposit of the waste. Article 28 also allows the district council to act in default and remove waste that has been unlawfully deposited on any land: • In order to remove or prevent pollution or harm to health; • Where there is no occupier of the land; or • Where the occupier did not permit the deposit of the waste. 29

Therefore, whilst district councils have the legal right to remove waste from other people’s property under certain circumstances, they would also be responsible for the associated costs, also the legislation makes it difficult for councils to act quickly in relation to the removal of materials that are not on council land. A further control is contained in Article 38 of the Order, which prohibits the transporting of controlled waste without being a registered waste carrier. Councils refer complaints of deposited commercial waste at bonfire sites to the NIEA. Where the Northern Ireland Environment Agency (NIEA) obtains evidence pertaining to the identity of the producer or transporter of controlled wastes, such as tyres placed on bonfire sites, investigations are carried out. Any enforcement action would be taken against the producer of the waste and/ or the transporter. Enforcement responsibilities and powers are currently the subject of discussion and review as part of the Waste and Contaminated Land Bill which was introduced into the Northern Ireland Assembly on the 22nd March 2010.

3.5.3 Roads (NI) Order 1993

The main legislation relating to roads in Northern Ireland is the Roads (NI) Order 1993. This applies to ‘roads’, meaning a public road, that is to say a road which is maintainable by the Department for Regional Development and includes: • A road over which the public have a right of way on foot only, not being a footway. This means that it is across fields, through woods, etc. but not alongside a carriageway; • Any part of a road; and • Any bridge or tunnel over or through which a road passes. Provisions most relevant to the collection of bonfire material are contained in Articles 59 and 94 of the Order. Other Articles, such as Article 88 (obstruction) could apply. Article 59 gives the Department powers to require a person who places anything on a road so as to constitute a nuisance to remove it immediately, and to take the matter to court if they fail to comply. Where the item is deemed by the Department to be a danger to persons using the road, the Department may remove it. Article 94 makes it an offence for any person to deposit, or permit to be deposited, building materials, rubble, rubbish, compost, dung or any other thing whatsoever on a road in such a position as to cause, or be likely to cause, any obstruction or danger. Enforcement of this article is dealt with by the Police Service. The Department may remove the material or take such other steps as are necessary to remove the danger. Roads Service car parks are not covered by the above Roads Order, but by Byelaws. 30

3.5.4 Police Service of Northern Ireland

There is no specific legislation in respect of policing bonfires. However, the police will become involved in an investigation where a complaint is received of injury to a person, or damage to property, or where there is public disorder. Police have the powers to charge people with a range of offences that are associated with bonfires e.g. criminal damage, assault, breach of the peace, disorderly behaviour etc. Furthermore, where a public service has been required to take action to remove or relocate a bonfire the police may be asked to attend in order to reassure and protect workers and to prevent any breach of the peace. Where a claim for compensation, in respect of criminal injury or criminal damage, has been forwarded to the Compensation Agency the police will be required to investigate the incident and forward a full report to the Agency. The Police Service are also responsible for the enforcement of certain provisions under the Roads (NI) Order 1993. Essentially this relates to interference with any roads maintained by the Department for Regional Development. Offences that could be linked to bonfires include:

• Causing Damage to Roads, Article 85 – Any person who without lawful authority or reasonable excuse, deposits anything whatsoever on a road and thereby causes damage to it shall be guilty of an offence; • Obstruction, Article 88 – Any person who, without lawful authority or reasonable excuse in any way intentionally or negligently obstructs the free passage along a road shall be guilty of an offence; • Lighting Fires, Discharging Fireworks, Article 89 – Any person who without lawful authority lights a fire or discharges a firework within 15 metres of the centre of a road and because of this any person or traffic using the road is injured, endangered or interrupted shall be guilty of an offence; and • Depositing of Things on Roads, Article 94 – Any person who deposits, or causes or permits to be deposited, any building material, rubble, rubbish, compost, dung or any other thing on a road in a position to cause or likely to cause any obstruction or danger shall be guilty of an offence. Whilst the prosecution of offenders is the responsibility of the Police Service, the responsibility to remove or have removed anything which they consider is causing or is likely to cause a danger or nuisance to road users lies with the Department for Regional Development. 31

3.5.5 Landowners and Occupiers

In addition to specific responsibilities referred to previously under environmental legislation, all landowners and occupiers (including public bodies) of land used as bonfire sites will have additional civil liabilities. Anyone adversely affected by the existence of a bonfire site may have a right of redress to damages in civil courts and under Human Rights legislation.

3.5.6 Legislative Summary

There are a number of legislative controls existing under Waste Management, Roads, Clean Air and Public Health legislation which apply directly to bonfires. In general, it is the landowner who has ultimate responsibility. There are also responsibilities in regard to those depositing the material to be burnt and lighting the fire. For example where trade waste material has been deposited the waste producer is also guilty of an offence under duty of care provisions, this would include tyre dealers who have not stored their tyres appropriately. Enforcement of these legal provisions varies depending upon the actual location and the nature of the offence. This is summarised in Table 3.3 below.

Table 3.3: 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

4. Best Practice across NI

4.1 There has been a wide variety programmes and initiatives that Introduction of management practices used have been developed by local by statutory bodies to control authorities in Northern Ireland, the bonfires and to make them safer. Republic of Ireland and the UK. The following section provides an overview of some examples of

4.2 Ballymoney Borough Council The project involved key Ballymoney developed two approaches to agencies such as the PSNI, NIHE, address environmental and social Ballymoney CSP, NI Fire & Rescue, Borough Council issues associated with bonfires and Ballymoney Borough Council. – Bonfire Incentive in the borough, the ‘Safer Bonfire The Bonfire sub committee meets Programme Competition’ and the ‘Bonfire monthly with increased on the Incentive Programme’. ground activity during the bonfire ‘The Safer Bonfire Competition’, building periods. started in 2004 and aimed An evaluation4 of the project to encourage a safer, more noted that after two years of being environmentally friendly approach operative, the emergency services to bonfires and to develop best reported less incidents involving practice within the Ballymoney bonfires. Borough.

4 Ballymoney Community Safety Partnership (2008): Evaluation of the 2006/08 Project Action Plan. 34

The evaluation highlighted that the project succeeded in: 1. Reducing the number of callouts required by the various emergency services; 2. Reducing the number of complaints associated with the bonfires relating to, for example the burning of tyres, alcohol, loud music, etc; 3. Reducing the amount of white goods discarded onto bonfires that were built up far too early; and 4. Encouraging bonfire organisers to leave the construction of their bonfires to as near the date as possible thereby reducing noise and other anti-social behaviour. The document also outlined the following key learning outcomes: • That communities do appreciate the need to reduce animosity caused by the traditional bonfire and that the input (and the financial support) available has had a key part to play in helping to broker new relationships; • More still needs to be done in a number of areas to reduce the burden placed on the relevant statutory services to clear up bonfire sites; • The added value to be had in addressing the carbon footprint agenda via the Carbon Sink project, which aims to combat the adverse effects of the carbon dioxide that is produced by the bonfires held within the Borough in July and October through planting trees (five trees absorb one tonne of CO2, but if the CO2 is produced annually, these trees need to be planted annually). Any prize monies from the Safer Bonfire Competition not awarded is used to fund tree planting throughout the Borough on an annual basis. In November 2008, the Ballymoney & Moyle Times reported that the cost of clearing up after bonfires in Ballymoney in 2008 had been reduced by 50% to £6,186.36. The ‘Safer Bonfire Competition’ was replaced with the ‘Bonfire Incentive Programme’ in 2010 because the former received the same entrants each year; therefore, the aim was to diversify the variety of entrants and reach more groups involved in bonfires. Following on from the Safer Bonfire Competition the council piloted the use of bonfire cages on a number of sites across the Borough for the 12th July Celebrations. The cages were introduced in an attempt to address the escalating costs of the clearing up after bonfires. The inter-locking cage sections are erected directly on the ground within which bonfires are built and contained. Each cage should last for up to five bonfires. Through the scheme groups have the opportunity to earn funding for their group to a maximum of £300 by adhering to set criteria. Groups are encouraged to follow best practice in terms of health & safety and environmental protection. By June 2010, six groups had agreed to participate in the scheme. 35

This scheme was developed after exploring a number of different approaches and reviewing best practice across the region. The Council consulted various groups within the community and ran a pilot project of the initiative in July 2010. Selected groups were approached offering them the opportunity to participate in the pilot project. The bonfire incentive scheme will be evaluated on a number of measures including: • Judges assessment; • The number of complaints received; • Tonnage of waste material; • Cost of clean-up; and • Feedback from key stakeholders including participants. As a result of the pilot in July the council made some amendments to this scheme to accommodate those communities who have decided to no longer have a traditional bonfire, and to ensure the safe return of all cages.

4.2.1 Programme Delivery

Ballymoney Community Safety tyre dealers, end of life vehicle Partnership has a bonfire subgroup dismantlers and the NIEA committee, which consists of through correspondence and representatives from the PSNI, personal visits. DRD Roads, NIHE, Good Relations, Members of the sub-committee Environmental Health, Community visit local voluntary and community Safety and local Councillors. groups to encourage them to They work with local communities sign-up to the good practice that is directly as well as contacting promoted through the programme.

The participants receive £100 advance payment and a further final payment of up to £200 if the following criteria are met: • The bonfire is erected and burnt within the cage (no materials are built outside the cage), which will be supplied and removed by Ballymoney Borough Council (£50 Awarded); • There are no unsuitable materials e.g. tyres, gas cylinders, aerosols, batteries, fridges, washing machines or other non-combustible items placed on the bonfire. Removal of any of the above items prior to the final assessment of the bonfire will ensure eligibility for payment. A designated area for any unwanted/unsuitable materials should be identified so that the council can come and collect it, prior to the event (£50 Awarded); • No materials for the bonfire are placed on the site more than 5 weeks before the date of the bonfire (£50 Awarded); 36

• No sectarian/political references or emblems are on the bonfire/Cage. (£50 Awarded); and • All cage components must be retrievable by Council prior to any final payment being made. Should these be missing the group will not be eligible for a final payment. It is also recommended that the following best practice be adhered to ensuring the health and safety of those involved, whilst preparing for and enjoying the celebrations: • The bonfire site should be kept tidy at all times; • There should not be any huts or dens in or near the bonfire; • Bonfires should be built with a clearance space of at least 5 times the bonfire height around it and it must not cause damage to nearby property or the surrounding area. If the bonfire is 5 metres high (approximately 15 feet) it should be 25 metres (approximately 75 feet) to the nearest property. Property includes any boundary fence or hedge; and • Bonfires should be kept clear of electricity and telephone wires and shall not cause a hazard for road users. In addition, if the community separates unsuitable materials, the Council will offer to collect them.

4.2.2 Funding

The Bonfire Incentive Scheme received £17,000 as follows: • £9,500 from Good Relations as a one off payment; • £4,000 from Ballymoney Borough Council; • £3,000 from Community Safety; and • £500 from NIHE. 37

4.2.3 Uptake and Impacts

Out of 18 bonfire sites within Ballymoney Borough area, six took part in the pilot programme in July 2010 and received part or the total of the award. Two of the six participants did not receive full payment: there being unsuitable materials burnt on the fire. Some of the preformed cage sections were so badly damaged that they would be incapable of being used for future burns. Heavy pedestrian barriers were used on one site which withstood the heat and could be used again. Consultation with a Community Safety manager involved in the programme suggests that the pilot programme was a success in terms of decreased incidents and anti-social behaviour, and it will be run again in October (Halloween). However, it was highlighted that two thirds of the total bonfire sites did not take part and two of the six participants did not meet the criteria. One community undertook to clear the site in 2010 and the Bonfire Committee would wish to encourage this best practice throughout the incentive scheme initiative. The Community Safety manager indicated that the Bonfire Committee will continue their work on the ground trying to identify representatives from the various bonfires within the Borough. This will take the form of both proactive (through schools, local community representatives, and elected representatives) and reactive (responding to complaints and intelligence received) approaches.

4.2.4 Lessons Learnt

From the experience of the programme, the following key learnings can be outlined: • The impacts of any intervention should be measured using a series of indicators: number of callouts required by the emergency services, number of complaints associated with bonfires, number of incidents associated with bonfires, etc. These need to be monitored over the years; • Building Council/ Community relations requires a lot of close work and interaction with the groups. This means that progress is usually slow and not only a matter of months but years; • In line with the previous key learning, the nature of the interaction should be more informal than formal in terms of the approach to the groups. This includes informal meetings with the groups, visits to their premises, informal communication throughout the year regarding relevant events or issues that may affect or interest the group, etc; and • Identification of other statutory agencies such as NIEA to address areas of mutual interest. 38

4.3 4.3.1 Background Belfast City Belfast City Council (BCC) in established to address growing Council – Bonfire partnership with Groundwork environmental and good relations Management NI (GWNI) developed a Bonfire issues that had emerged in Programme Management Programme in 2005. relation to the 11th July bonfires in The programme was undertaken in Belfast. The Bonfire Management response to increased community Programme 2007/09 followed concern in regard to the negatives on from two pilot programmes impact of bonfires. By 2007 initiated by the council in 2005 a three-year programme was and 2006.

The overall aims of the Bonfire Management Programme were5: • To support a number of communities in Belfast in the celebration of their cultural tradition through positive engagement, whilst engaging with the perceived negative aspects that have become associated with bonfires; • To work with and support local communities to bring about improvements in bonfire management, particularly in terms of inclusivity, safety and increased family atmosphere; • To further reduce the adverse health and environmental impacts of bonfires on the city including the illegal disposal of waste. The Bonfire Management Programme aims and objectives can be summarised into addressing four areas: • Capacity building and community development; • Environmental issues; • Good Relations issues; and • Cultural Traditions issues. Belfast City Council’s key responsibilities included: • Providing financial resources and seeking additional funding from other agencies; • Participating in the selection of new bonfire sites; • Providing expertise and support through policy and Good Relations; • Procuring an external cleaning contractor and dedicated enforcement support for participating sites; • Commissioning external review of the programme; • Managing all external communication of the programme and preparing progress reports for committee; and • Engaging directly with all of the participating communities and other organisations and agencies to ensure effective delivery of the programme.

5 Institute for Conflict Research – J Byrne & O O’Riordan (September 2009): Review of the Belfast City Council’s Bonfire Management Programme 2007-2009 39

Groundwork NI6 key responsibilities included: • Managing the day to day running of the programme and a point of contact for participating communities; • The financial mechanism whereby each community accesses the funding through GWNI, who invoice and pay on behalf of the council; • Supporting communities to progress towards the aims of the programme and adhering to the guidelines through advice, facilitation of meetings; assistance with planning for family orientated Eleventh celebrations, and suggesting ways of making the programme at the local level more inclusive; • Managing the external cleansing contractor; • Participating in the selection of new sites; and • Assisting communities in the delivery of the cultural elements of the programme.

4.3.2 Approach: Engagement and Enforcement

Belfast City Council’s Community The next step was to build on Relations unit is responsible these relationships and by finding for liaising with stakeholders, other influential people in the local communities to establish statutory bodies and the wider links with the Council, as communities on bonfires. well as strengthening existing Initially, the areas that were relationships. It was found engaged were because of pre- that informal meetings worked existing relationships between the best with regard to building Council and community groups. relationships.

6 Groundwork NI is part of a federation of charities and delivers environmental improvements in areas of need throughout Northern Ireland and in the border counties of the Republic of Ireland. Its focus is to work in areas of disadvantage where the peace process is at its most fragile. It is funded by a range of sources including the European Union, Local Government, National Lottery, public agencies, the private sector and other sources, such as charitable Trusts. 40

4.3.3 Grant Aid Framework

A key element of the bonfire attached to them. If a bonfire management programme was committee adhered to the various the Grant Aid Framework. guidelines they would be awarded Essentially this was a set of bonfire funding that would total £1,500. management guidelines that The guidelines and grant aid had performance linked funding framework are outlined below.

The grant aid framework was a method of awarding the commitment and participation of communities in achieving adherence to the above guidelines. There were five key elements to the framework: 1. Successfully create a community committee by March 1st that is representative of the key stakeholders in the area and includes a balance of people in terms of age, gender, role within the community and young bonfire builders – Awarded £300; 2. Engage the wider community on cultural heritage issues; facilitate engagement with local elected representatives; build local capacity to deliver locally based programmes; and develop local dialogue to begin to address issues of Nationalist flags on and within the vicinity of bonfires (A plan of activities to be developed by April 1st) – Awarded £400; 3. Consult within the local community and with relevant statutory agencies about the site, location and size of the bonfire. Ensure no collection of materials on the site by May 16th – Awarded £100; 4. If groups refrain from collecting materials, there is an additional award of £400 if collection of bonfire materials has not begun before June 1st; and 5. Successfully maintain a clean, compact, tidy, tyre-free site, also free from other materials such as plastics and other carbon negative materials up to July 11th – Awarded £300. 41

If communities worked progressively towards each of these targets then they would be awarded the full amount of £1,500 to hold a family orientated Eleventh festival.

4.3.4 Beacons

The development and key was to promote the benefits to implementation of bonfire beacons the community, and highlight the was one of the key outcomes various programmes and initiatives from the programme that was that were occurring alongside the unforeseen at the beginning of beacon. The focus shifted from the the process. beacon to a festival that aimed to The Woodvale community promote their culture and identity in 2007 brought the idea to in a positive manner, something BCC of replacing their bonfire the previous bonfires had failed with beacons and transferring to project. celebrations from nearby interfaces In 2009, six communities within to the local park. The programme the programme chose to transform enabled discussions between their celebrations by using a community representatives, beacon instead of a large bonfire GWNI and BCC to take place in (Donegal Road, Sunningdale, a structured format, and Whitecity, Lower Shankill, Tigers appropriate resources and Bay, and Woodvale). Once again experience to be utilised. the beacons proved extremely Over the course of a year, which successful in relation to addressing involved numerous consultations the environment and good and tests, a beacon was developed relations aims of the programme. and used in Woodvale’s Eleventh The Belfast example demonstrates celebrations in 2008. The that the beacon concept cannot beacon formed one element of a be imposed upon communities, community festival that attracted and must be viewed alongside local people from different several other events that focus neighbourhoods throughout North on the cultural celebrations that Belfast. A reduction in interface surround the Eleventh night. There violence, anti-social behaviour, and are sections of the community illegal dumping was attributed to that view this as a dilution of their the beacon. celebrations, and a method of The bonfire committee consulted eradicating bonfires from their widely within their community community. This was evident prior to the beacon replacing the in 2009 where elements within bonfire. Some communities were some of the communities that had reluctant to change from their beacons disengaged from traditional bonfire, however the the process. 42

4.3.5 Uptake

According to BCC, there were approximately 84 Eleventh night bonfires across the city in 2009. In 2005, 8 bonfire sites were managed under the programme, with a significant increase in 2006 to 12. The table below provides an overview of those who participated in the programme from 2007 to 2009, along with the site ownership:

Table 4.1a: Belfast Bonfire Management Programme – Bonfire sites included in the programme 2007/09

Bonfire site Land Owner 2007 2008 2009 Annadale BCC √ √ √

Donegall Road Private √ √ √

Donegall Pass Private √ √ √

Finaghy BCC √ √ √ Highfield/ NIHE √ √ √ Springmartin Inverary BCC √ √ √

Lower Falls NIHE √ √ √

Pitt Park BCC X √ √

Sandy Row Private √ √ √

Shore Crescent BCC √ √ X

Suffolk NIHE √ √ √

Sunningdale BCC X √ √

Taughmonagh NIHE √ √ √

Tigers Bay Private X √ √

Woodvale BCC √ √ √

Total – 12 15 14

Source: Institute for Conflict Research – J Byrne & O O’Riordan (September 2009): Review of the Belfast City Council’s Bonfire Management Programme 2007-2009 43

In addition, up to 19 communities participated in the bonfire management programme in a developmental manner, with facilitated discussions with BCC and GWNI around issues pertaining to their bonfires. This programme developed further with an increase in sites in 2010, with the development of the Cultural Networks programme through the Council’s Peace III programme.

The table below indicates this progression: Table 4.1b: Belfast Bonfire Management Programme – Progression

No. of Groups Year No. of Bonfires % of Total Bonfires Participating

2005 108 8 7%

2008 84 17 20%

2010 77 42 55%

Source: Provided by Belfast City Council (October 2010).

4.3.6 Funding

In order to implement and develop the programme, BCC requested matched funding from a range of sources. The funding sources and amounts allocated over the period 2007/09 were as follows: • Belfast City Council (BCC): £50,000 per annum; • Northern Ireland Office (NIO) / Community Safety Unit (CSU): £25,000 per annum; • Police Service of Northern Ireland (PSNI): £25,000 per annum; • Northern Ireland Housing Executive (NIHE): £25,000 in 2007/2008; £10,000 for a beacon in 2009; and • Community Relations Council (CRC) / OFMDFM: £40,000 to cover the research and development of the beacon project. In 2010, the programme received funding from the Council’s Peace III programme for a new Cultural Networks Programme, and it is expected that it will continue for the period 2011/13. 44

4.3.7 Evaluation of the Programme 2007/09

Belfast City Council (BCC) addressing a sensitive, political, commissioned the Institute for and divisive subject area. The aims Conflict Research (ICR) to conduct of the programme were clear and an evaluation of the 2007/09 concise, although periodically the Bonfire Management Programme. Council had to refute allegations The evaluation highlighted that the of an agenda to eradicate bonfires bonfire management programme from within Unionist and Loyalist was an innovative and challenging communities. development in relation to

Key findings of the evaluation were as follows: • Environmental issues: largely addressed, although several sites still presented illegal dumping. The external contractor successfully assisted the communities in improving their sites through the removal of unwanted and illegally dumped materials. However, the downside was that several communities may have a dependency on the contractor, who is constantly subject to funding. • Good Relations issues: significant transformation away from the paramilitary, alcohol fuelled events to more family friendly, festival occasions. However, concerns remained around the burning of Nationalist and Republican symbols on bonfires. Discussions began to take place, and the bonfire management programme provided the most appropriate mechanism to facilitate and encourage community dialogue around this topic. In 2010, 33% of participating sites (14 out of 42) did not burn any Nationalist or Republican flags/symbols on their bonfires. • Beacons: the development and successful implementation of beacons proved to be a significant outcome from the programme. The programme improved the confidence and provided community groups with the experience to engage with statutory organisations on numerous community issues, and not just those emanating from bonfires. • Social and Economic Partnerships: the level of dialogue and engagement generated between communities and service providers, as a direct consequence of the programme, was not envisaged at the onset of the programme in 2007. It was an indirect, yet highly significant outcome, and one that is difficult to measure. However, communities and agencies frequently acknowledge the role BCC and GWNI played in building sustainable partnerships through the process of engagement through bonfire related issues. 45

• Belfast City Council: general consensus from the bonfire committee was that the council were the most suitable organisation to manage issues relating to bonfires in Belfast. The programme has been run from within the Good Relations Unit of the Council since 2007, when previously it was based within the Parks Department, with a greater emphasis on environmental issues. The Good Relations impact of the programme has really engaged communities on the issues of how to positively celebrate their cultural heritage in the context of a shared city, and this focus has reassured communities that there are benefits from positive participation in the programme. Issues concerning the future funding of the programme highlighted the difficulties BCC may have in continuing to deliver a programme, and the role that bonfire committees may have in generating finance for their cultural programmes and celebrations may increase. A key outcome from the programme was the development of relationships between BCC, the emergency services, the wider communities and statutory groups affiliated to the programme. The topic of bonfires was the catalyst for engagement that created a mechanism for other community issues to be discussed and addressed. The Council has been successful in packaging the work around bonfires into a wider exploration of cultural heritage and has successfully secured the works inclusion into the second phase of the Belfast Peace Plan until the end of 2013. • Communities: At the beginning of the programme in 2007 a key issue was developing bonfire committees that would be representative of their communities, to provide support to their local communities in making decisions around transforming their Eleventh celebrations. The programme revealed the disparities between Loyalist communities and the difficulties with implementing one programme in a number of different areas. Over the three years, certain communities progressed more positively than others, with the key factor being the extent of willingness from their communities to embrace the ethos of the programme. The local bonfire committees also became more reflective of their respective communities with an increased participation of females and young people. This change in the dynamics subtly shifted the emphasis of the celebrations to one that revolves around less use of alcohol, more youth activities and a family orientated festival atmosphere. The role of young people is a constant theme within bonfire management discussions. There are those from the communities who associate them with anti-social behaviour, violence and the early collection of bonfire material. However, there are other sections of the community who are concerned at the lack of knowledge young people have about the Eleventh and other Unionist/ Loyalist historical events. They recognise the impact this has on young people’s perceptions of identity and culture and feel that the bonfire management programme is one mechanism 46

to assist in addressing this shortfall. The bonfire programme was in a position to adapt to the communities needs and complement and support their existing initiatives. This element highlighted a key learning from the programme and showed the importance of self-evaluation and critical engagement. The bonfire committees welcomed support in facilitating discussions on cultural traditions, but for them it was more than simply conversations about bonfires. They viewed this as an opportunity to examine other aspects of their culture, and the bonfire management programme was the means by which they could bring forward their ideas. The process of engaging with Nationalist / Republican communities is crucial in the context of building and sustaining relationships between the two dominant communities. The programme has highlighted the lack of knowledge and understanding within the Nationalist / Republican community of bonfires. There were a number of examples of positive engagement, significantly around the relocation of bonfires away from interface areas. The bonfire management programme was a practical example of a method by which communities throughout the city can engage in dialogue, raise sensitive issues and highlight their concerns and fears. In addition, the evaluation outlined a series of recommendations, a few of the most relevant to this review are noted below: • Community Identity. The future management of bonfire related issues must incorporate themes of culture, history, tradition and identity. It should also include local communities in the design and implementation stage of the development of the programme. • Alternatives to Bonfire. The bonfire management programme has facilitated the physical transformation of bonfires into beacons within a number of communities. There has been some reluctance within some communities to embrace the beacon concept, with complaints that they are too small, and dilute their culture and tradition. However, other communities have endorsed the beacons and used them to transform their celebrations in community festivals. The beacons are a positive development in BCC, but the research has shown that they require a significant level of preparatory work within the communities prior to the Eleventh. It is also important to recognise the position of the local bonfire committees who are attempting to generate community support for the beacon. They are often placing themselves in opposition to the community, and risk a backlash if the beacon does not fulfil the communities’ expectations. Furthermore, the funding of beacons will prove an issue in the future, as was illustrated by Ballymoney Borough Council, who were refused funding by OFMDFM for a beacon in 2009. It is important that where beacons are used that the necessary support and resources are implemented prior to the community receiving the beacon. 47

• Waste Management. The use of an external contractor to assist in the site maintenance of bonfires, and removal of illegally dumped material, as well as cleaning of sites has proved very successful. The communities have benefited as their sites are kept tidy, and the BCC Cleansing Department have had to use less resources and time responding to fly-tipping. However, this has come at a cost of approximately £80,000 over four years. There is no doubting that it was a necessary response at the beginning of the programme, but there is a danger that both council and the communities have become over reliant upon the contractor. As the programme has proceeded however, these costs have seen a year-on-year reduction. There is an onus of responsibility on communities and statutory agencies to respond to the growing presence of illegally dumped material at bonfire sites. • Funding. This is an area of growing concern which ultimately BCC and the communities have little control over. The benefits of the programme have been widely publicised, and there have been significant positive developments along the way. However, there are continued difficulties in generating a sustainable avenue of funding for the long-term implementation of the programme. A preventative approach to bonfire management issues is financially more cost effective as opposed to a responsive approach. However, the overall benefits to organisations may only be felt if the programme ceased to exist. Within the context of Belfast City Council, the continuation of the programme has become a conversation about ‘investing to save’. There are clear savings to be made through the investment provided through the programme – investment in cultural heritage, people and communities and in education and awareness. The programme has been an engagement tool for developing good relations work with working class Loyalist communities, one of few investments in the people, culture and traditions of such communities, in areas where the ‘peace dividend’ is not apparent. Spin-offs from the programme have resulted in increased up-take by these groups in other positive Council initiatives in good relations/community safety/interface intervention/mural removal work. 48

4.3.8 Key Progress

• PSNI statistics have consistently decreased over the life of the programme. In 2010, call-outs relating to the 42 sites on the programme were less than a quarter of incidents (58 or 22.4%) recorded in 2009. • NIFRS call-outs have also consistently decreased. In 2007 200 call-outs were recorded and these were reduced to 80 in 2009 and to 32 in 2010. Of these 32, 21 were responded to, but just 2 were related to bonfires and neither required any action to be taken (News Letter, 19th July). • None of the participating sites burnt tyres or other toxic materials in 2010 (100%). • Increasing number of sites do not burn any Nationalist or Republican flags or symbols; 14 of the 42 sites (33%) in 2010 compared with 8 in 2009 (24%). • The Cultural Networks programme removed and replaced 8 militaristic murals in participating communities. • DRD Roads Service recorded a 50% reduction in clear-up and repair costs in 2010 compared with 2009 (an estimated saving of £18,000). • There is key support for this programme within these agencies.

4.4 Coleraine Borough Council in 2003 The Council deals with the Coleraine produced a ‘Safer Bonfire’ code bonfire management through its of practice that had a focus of Environmental Health department, Borough Council neighbourliness and safety, and Community Development & – Safer Bonfire also attempted to address any Good Relations department, and Initiative misconceptions that the Council Community Safety Partnership. were attempting to discourage the These together with NIHE, NIFRS expression of particular cultures PSNI and local community groups and traditions. are part of the Bonfire Committee, The document stated that the which meet approximately every aim of the policy was “to work 6 weeks to discuss any issues with relevant agencies and with around bonfires in the Council community representatives to area. The meetings are held more promote safety, the environment often during the bonfire ‘season’ and neighbourliness in the (from April to November) and less management of bonfires regularly in winter. (generally July, August, Halloween and New Year)”.

The Bonfire Committee works on a series of strategies focused on safety and environmental issues, and also community relations. These include: • "Safer Bonfire” campaign, launched in 2005 which and supported by local communities and promoted by Council in partnership with PSNI, NIFRS and NIHE. It seeks to actively discourage the use of potentially 49

dangerous and environmentally damaging material such as tyres as fuel for bonfires, and targets other areas such as early gathering of material and inappropriate siting of bonfires • The Council is appealing to farm owners and relevant retailers (e.g. tyres) to say 'no’ to anyone that approaches them for their old tyres. • Series of schemes and activities to educate children and young people towards a more festival-related celebration of the traditions that include bonfires. This includes formal conferences in schools in partnership with the NIFRS and community groups to informal meetings / on the ground face-to-face interaction with individuals involved in bonfires. There is no specific funding in place for the campaign and it depends on work from Council officers and staff from other agencies. • The Council does not have a specific budget allocated to the management / safety of bonfires. However, departments within the Council assign officer time to this area as part of their responsibilities (Environmental Health). The Council’s experience of managing bonfires demonstrates that any approach needs to be planned as an incremental process, where progress is slow and may take several years to make significant impact. It depends on the level of engagement and quality of links with community groups.

4.5 Down District Council have a their premises. This built on pre-existing relationships between Down District Bonfire Liaison Committee in place through the Community Safety the groups and the Council. Council – Beacons Partnership and the Council. It Two of the five bonfire sites works together with PSNI, NIHE, accepted the alternative and Roads Service, NIEA, NIFRS and provided positive feedback of their DRD in relation to bonfire related experience and they want them issues. It is managed by the back next year; and the remaining Community Safety Partnership three bonfire sites saw the success within the Council. and are keen on the idea. Of the In 2010, the Council offered 18 main bonfires that take place community groups the option of for Halloween, 4 have already using beacons instead of bonfires accepted the alternative of the (July, Internment and Halloween bonfire. bonfires). The introduction of The University of Ulster managed beacons was based on an informal the introduction of the beacon communication from Community project in Down in terms of Safety officers to the community the design, structure and groups, such as visits to the implementation of the beacons. groups or informal meetings in 50

4.5.1 Funding and Costs

The funding for the beacon project Poster Competition (2 rounds per comes from Peace III funding, year with 6 winners each – 12 in accounting for £45k in 2010. In total per year) and other initiatives addition, Down District Council for the management of bonfires allocated to £5k for the Bonfire such as signs.

The cost of each beacon is around £10.2k as follows: • £7k beacon structure; and • £3.2k installation and risk assessment. Down District Council estimated that the average cost of cleaning up a bonfire site after it is lit is around £1.5k, sometimes up to £2.5k. Consultation with the Community Safety Manager indicated that this cost is dramatically reduced if a beacon is used.

4.5.2 Bonfire Poster Competition and Other Initiatives

Apart from the Beacon project, The competition is organised the Council launched the Bonfire twice a year, one in July and one Poster Competition in 2008, which in October (Halloween), and offers aimed at raising awareness about a £50 voucher to six winners who the importance of keeping safe have their entries featured in the around bonfires and fireworks Community Safety Partnership’s amongst young people across the Calendar for 2011. district.

4.5.3 Lessons Learnt

The Community Safety Manager make sure that the celebrations highlighted that the management take place at the minimum risk of bonfires and liaison with and maximum safety, not to get groups is different every year rid of bonfires. and requires ongoing work in Although the Beacon project is terms of community building and expensive (£10.2k per beacon), strengthening the relationships it has proved to be a success in with the community. terms of positive feedback from Some groups understand any the participants, a cleaner and action from the Council as a safer celebration and significantly strategy to stop the bonfire. It is reduced costs of cleaning up important to be made clear that the site. the projects are undertaken to 51

4.6 4.6.1 Introduction Ards Borough Since 2005, the Council has engaged with bonfire builders in local Council – communities through its Good Relations programme. While not Local Bonfire formalised in a policy, the three strands of the project were to: Committee and 1. Work with local communities to ensure that any bonfires that do Bonfire Policy take place happen in such a way that there is minimal impact on the environment and community. 2. Provide funding for Family Fun Day activities to change the atmosphere from fuelling the anti-social element to encouraging family participation in a community festival. 3. Provide funding for communities to explore the meaning of Protestant culture in more positive and productive ways. The core conditions for participation in the Council’s Bonfire Programme have developed into the following: • The development and support of local bonfire management committees; • Local agreement that material for burning is not collected before the second Saturday of June; • Local agreement that toxic and unsuitable material will not be burnt on bonfires; • Local agreement that bonfire sites are regularly monitored for tidiness; • The erection of suitable signage showing suitable and unsuitable material for the bonfire, and stating a warning that the site is being monitored for fly tipping; • Local agreement that Council or Northern Ireland Housing Executive contractors have access to bonfire sites to remove unsuitable material as agreed by the local management committee; • Local agreement that there will be no commercial dumping at bonfire sites; and • Local agreement that no huts are created within the material collected for the bonfire. 52

Between 2005 and 2007, the programme has developed to involve 18 bonfire sites in Newtownards, Comber, Donagahdee and the Peninsula area. There is also demonstrable evidence to show that the bonfire programme has helped to: • Create an atmosphere of co-operation with local bonfire builders; • Lessen the amount of unsuitable and toxic materials burnt on bonfires; • Lessen the fear of crime and anti-social behaviour on 11th July; • Eradicate confrontation between local community activists and Council employees; • Cut the costs of clean-up after these events; • Have a positive impact on other issues such as the flying of paramilitary flags, murals and graffiti; and • Increase community cohesion and social capital through wider community engagement.

4.6.2 Bonfire Committee

In 2007 the existing Bonfire to address problems and cleansing Committee was restructured and issues arising from bonfires held in streamlined. Its revised remit is to the Borough – is being fulfilled by work with other relevant agencies the Council Services Committee.

4.6.3 Management Structure

The Lead Officer in the Council’s Bonfire Programme is the Good Relations Officer. The Council has a Bonfire Policy, which was drawn up initially in 2007. This codified the practice that had been undertaken between 2005 and 2007, and it has been reviewed annually and amended where appropriate. The Bonfire Programme is underpinned by consultation. The Good Relations Officer convenes a meeting of Council Officers, whose work is impacted by bonfires: • Community Safety; • Cleansing; • Borough Inspector (Enforcement); • Works; • Technical Officer; • Parks and Cemeteries; and • Equality. 53

The Good Relations Officer also convenes a meeting of statutory agencies who are impacted by bonfires: PSNI; FRSNI; NIHE and the Council. There are a number of community based meetings: the community groups with which the Council works in the bonfire programme (there are 10 groups which receive a Letter of Offer for funding of cultural/ diversionary activities around bonfires); there are six community Focus groups (Cloughey; Portavogie; Ballyhalbert; Ballywalter; Comber; Newtownards). The Bonfire Policy clearly states that the Council does not permit bonfires to take place on its land. However, it will engage, in partnership with other statutory agencies and with local community groups. These groups in turn engage with local bonfire builders to secure compliance with the Core Conditions of the bonfire programme. Compliance with these Core Conditions secures funding through the Good Relations Unit for cultural/ diversionary activities.

4.6.4 Bonfire Policy

In 2007 the Council took a more formal approach to bonfires in the Borough, due to: • The piloting of a beacon and fireworks programme in Ballyhalbert; • The introduction of Corporate Manslaughter legislation; and • Two claims that have been brought against the Council after the bonfire in Portavogie (as yet, both of these are unresolved). The Council recognised the possibility that claims could be made against them if bonfires took place on their land. Given that the Council was not able to secure insurance cover for bonfire events, the Health and Safety element was felt to be the key driver for determining the way ahead. The Council created a Bonfire Policy that set out to preserve relationships with local communities through the bonfire programme, and protect the Council against public liability claims. The aims of the bonfire policy (2008) are as follows: • To maintain and develop the level of goodwill built up in the local community; • To maintain and develop the core environmental conditions of any bonfires that do take place; • To ensure that celebrations on the 11th July continue; and • To enable the Council to fulfil its environmental obligations and to ensure compliance with the Waste and Contaminated Land Order 1997. The steps required to deliver on the policy were set out as: • To reduce the number of traditional bonfires on Council land; • To encourage the development of a programme of alternatives; and • To provide continued financial incentives so that the bonfire season continues to become a more positive community festival; 54

Measures within the Bonfire Policy: Measure 1: General • The Council affirms that traditional bonfires are unlawful and no permission is given for them to take place on council property. Measure 2: Bonfire Alternatives • Communities will be offered the opportunity to have a bonfire alternative, suitable for purpose, having been approved by the Council’s insurers; • The Council will provide a footprint alternative framework and deliver it to site from an identified storage area. Local communities will take responsibility for the collection of suitable combustibles and the appropriate use of alternatives. The Council will provide barriers to protect the site after the event before clearing the site; • The Council will provide funding for a Family Fun Day; and • Communities shall ensure that the appropriate permissions for use of Council property and that fireworks and entertainment licenses if necessary, and appropriate event insurance as required, are in place. Measure 3: For any traditional bonfires that continue to take place on both Council and non-Council property • Communities will be asked for a written commitment to transform their traditional bonfire into a mutually acceptable alternative by 2011; • Communities giving such a commitment will receive funding at the higher rate, but will be excluded from any future programme should they fail to deliver on their commitment; • Communities will be asked to commit to the core conditions of the bonfire programme; • Communities choosing a traditional or alternative bonfire will be provided with security fencing to fence off bonfire residue before being cleared away; 55

• Communities will be awarded funding at a lesser amount of that awarded to communities that use an alternative as determined by the Council in advance of the programme in any year; and • Communities with a traditional bonfire site on Northern Ireland Housing Executive land will obtain the higher level of grant if the written commitment is given. However, the footprint device will only be provided to these areas subject to the Housing Executive providing funds for their construction. Measure 4: The establishment of a Borough wide Bonfire Forum composed of representatives from: • Elected members; • Council Officers; • Community representatives from each site; • Representatives from PSNI, Housing Executive and NI Fire and Rescue Service; and • Mediation Northern Ireland.

4.6.5 Actions

Community groups are offered funding at two levels: one for traditional bonfires and the other for transformation. There are three kinds of transformed bonfires: a Willow Burner (developed by Belfast City Council and Groundwork NI); a gas beacon (developed by the Council in partnership with Calor Gas); a sand based bonfire frame (developed by the Council).

4.6.6 Costs and Funding

The costs of the bonfire came about because of the programme have increased participation of a greater number dramatically from 2005 to 2009. of groups working with bonfire In 2005, the total cost of the builders: from 3 in 2005 to 10 in programme was £2,250. In 2009 2009 (there are 26 bonfires in total it was £57,500. This increase in the Ards Borough).

There was a cocktail of funding in 2009 as follows: • £31,500 (OFMDFM); • £10,500 (Council); • £6,000 (Borough Inspector); • £9,000 (Community Safety Unit); and • £500 (Housing Executive). 56

4.6.7 Evaluation

Ards Borough Council collect a on community safety and the range of data relating to bonfires promotion of good relations. in the area including data from the The evaluation report noted that council’s cleansing department there was a significant reduction in and they undertook an evaluation the quantity of materials removed of the Bonfire Management from sites following the bonfires, Programme in 2009. The as such the cost to clean these evaluation considered a number sites have also been reduced. of issues including, cost, impact

The Council also undertook an annual survey of community groups since 2006; some of the key findings were that community felt that: • There was a reduction in anti-social behaviour associated with the bonfire; • There was an improvement in the clearing of the site following the bonfire; and • There was an overall reduction in the level of awareness of actions being taken to control nuisances associated with bonfires.

4.6.8 Outcomes

The council noted a number of key outcomes associated with their Bonfire Management Programme: • The cost of policing bonfires in the Ards Borough has decreased significantly and the number of reported incidents is down; • A reduction in the cost of clearing bonfire sites following the fire (£12,218 in 2006 to £8,480 in 2009) and a reduction in the cost of removing waste tyres (£2,075 in 2005 to £0 in 2009); • A significant reduction in the tonnage of waste removed from bonfire sites, from 149.21 tonnes in 2005 to 64.94 tonnes in 2009; • The number of Fire and Rescue call outs has gone down for the third year in succession; • The number of participating groups is now at 10, encompassing 21 bonfires. There are 26 possible bonfires in the Ards Borough; • There is a clear indication that Catholics and Minority Ethnic Communities are attending bonfire activities; • Local people are taking responsibility for clearing up after the event and of marshalling the activities; and • The fear of crime and the incidence of recorded crime are down. 57

4.6.9 Lessons Learnt

There have been challenges and lessons learned every year: • 2005. This was the pilot year. Three community groups in three bonfire locations participated in the programme; • 2006. The challenge was to roll the successful 2005 pilot out to other locations across the Borough. There were 7 groups participating in 14 areas; • 2007. The main challenge this year was of indiscriminate commercial dumping. After this year, the Core Conditions were amended to include a prohibition on commercial dumping at bonfire sites. This was agreed by community groups. Also, this was the year when the Bonfire Policy was developed given two claims against the Council: one for personal injury and one for damage to property; • 2008. Focused on the development of alternatives to traditional bonfires. Working in partnership with Calor Gas, the Council developed a gas alternative and three were deployed as part of the programme; • 2009. The main challenge this year was to increase the number of transformed bonfires. There were 2 gas beacons deployed; 1 Willow burner; and 4 bonfire frames; and • 2010. There were 2 gas beacons; 1 willow burner; and 12 bonfire frames deployed. This was the most significant uptake of alternatives since the programme began.

4.7 4.7.1 Manchester – Safe4Autumn Initiative Best Practice Elsewhere Safe4Autumn is a multi-agency 14 per cent during the Halloween initiative aimed at preventing, and the 5th November period in tackling and protecting against the Greater Manchester area. anti-social behaviour, criminal The Safe4Autumn partners damage and harm reduction during include Greater Manchester Fire the Halloween and Guy Fawkes and Rescue Service, Greater (5th November) period across Manchester Police, Local Greater Manchester. Authorities, Trading Standards, It also provides assurances to the Greater Manchester Passenger public that such actions will not be Transport Executive, Greater tolerated. Data from the initiative Manchester Chamber of Commerce indicates that in 2008 anti-social and the Health and Safety behaviour dropped by more than Executive.

http://www.safe4autumn.com/ 58

4.7.1.1 Activities The Safe4Autumn initiative has a website7 where relevant information and advice are provided: • Bonfire safety advice: guidance and safety code for a safe bonfire celebration. • Halloween safety advice: list of ‘dos and don’ts’ in Halloween. • Fireworks safety advice: “If you’re planning on hosting a fireworks party “be safe, not sorry” and keep it free from accidents by following the Fireworks Code”. Fireworks code, other safety tips, legislative considerations and fireworks amnesty (run by the Greater Manchester Fire and Rescue Service and aimed at driving down firework related accidents and keep Greater Manchester safe during the Bonfire period. It allows members of the public to dispose of fireworks safely – a telephone number is provided to ask the Fire Service to collect these). • Organised bonfires by area: it recommends that the public consider attending an organised event rather than risking their safety by having their own bonfire. The organised bonfires are presented by area and key information is detailed. • Guidance and legislation links: provides links to key legislation and guidance (The Fireworks Regulations 2004, Storage of Explosives Regulations 2005, Retailers Risk Assessment Checklist, Be Safe on Bonfire Night!, Anti-Social Behaviour – in the Community, Halloween Guidance and Safety Advice, Fireworks Guidance and safety, Storing and Selling Fireworks Safely, etc.); key stakeholders (Greater Manchester Police, Health And Safety Executive, Greater Manchester Fire And Rescue Service, etc.). • Teachers’ toolkit: resources for teachers, including information and guidance for the poster competition and a Children’s Activities Pack. • Poster competition: A competition is organised by Greater Manchester Police and Greater Manchester Fire and Rescue Service as part of the Safe4autumn Partnership to reinforce Halloween, Fireworks and Bonfire messages. All children in Year 7 are invited to take part in a poster competition. There are prizes for winners in each Local Authority area, and also for the whole of Greater Manchester: » Posters must be designed to reinforce the messages of keeping safe around Halloween and Bonfire Night and avoiding anti-social behaviour; and » Posters are judged mainly on the quality of idea and the clarity of the message, but also the use of colour and artistic merit will add to the impact. 59

4.7.1.2 Impacts According to results published in 2007. Arson was also down 31.1% the Safe4Autumn website, firework and the number of call outs to nuisance was down 45.7% and small fires in the open was reduced anti-social behaviour was 14.8% by 2.4%. There was also a 24.5% lower during the same period of reduction in criminal damage.

4.7.2 Cork

In Cork bonfires are traditionally bonfires, for example residents held in the last week of June. of two housing estates asked for This is traditionally a very busy ‘No Bonfire’ signs to be erected in time for the fire brigade and the the estates and a letter was sent local police. In recent years fires to all residents asking that no have spread to gas pipelines and bonfires be lit on the greens, and electricity poles. told them of the alternative events In order to provide alternatives, for children. However, council Cork City Council run its own staff, were still required to remove family-friendly and controlled and stockpiled bonfire material from supervised bonfire celebrations, public areas and also discovered which attracted around 8,000 materials being stockpiled in people. Council run celebrations private homes8. took place in seven locations Cork City Council have recognised across the city from 5pm to 9pm. the need for a specialist group Community leaders will attend to be formed to tackle issues the events as well as the city’s associated with bonfires, such as park rangers and wardens and will anti-social behaviour and illegal feature family games, karaoke, and fires which damages property. bouncing castles. Local Councillors noted that “the The events are led by local future of bonfire night lies in the community organisations with development of planned and funding provided by the council. managed events which involve Events are free, all are welcome placing the traditions of bonfire and all events are alcohol-free. night in a community and family The council has also responded context”. to specific requests in relation to

8 http://www.corkcity.ie/news/archivednews2010/mainbody,32606,en.html 60

4.8 The review of practice elsewhere highlights that the North West is not Conclusions alone in experiencing anti-social behaviour, environmental damage and significant costs associated with bonfires. It also highlights that whilst a number of areas have achieved positive impacts through specific bonfire management programmes, it is an ongoing issue and there is no quick fix. Experience from elsewhere highlights the importance of: • Community Engagement: all of the areas reviewed highlight the importance of local engagement. This would include the identification of key community representatives, the development of local bonfire committees which are representative of the community and significant ongoing investment of time to build local relationships. Any actions that are taken at a local level should be led by the community and driven at a local level or else they will not be sustainable; • Where the level of support for a tradition bonfire is not clear, it is important the community undertake a community survey to define the actual views of the whole community; • If necessary community representatives should consider visiting other communities that have successfully implemented a plan; • Those areas with the greatest improvement impacts point to a situation where there has been extensive ongoing engagement with local representatives over a prolonged period of time; • Partnering with the police services; fire service, local authorities, roads representatives etc. are key, but they are not enough. There is an opportunity to partner with young people representatives, (especially those potentially involved with the bonfires and the local communities), parents and guardians of the young people and women; • Setting Expectations: The review of practices elsewhere demonstrates that this is a process which takes time and it can only move at the pace the local communities and in particular if those involved or close to the bonfires want it to develop. People or authorities external to the residents cannot successfully determine the rate of change, but 61

there are tools that have helped in supporting the change process (see below) but it is the local community that are the change agents. It is therefore important that unrealistic targets or outcomes are not set for the programme and instead that the focus and any measures of success are linked to developing the need for change within the local community; • Any action or alternative should be sustainable and funding is particularly/ increasingly difficult to obtain; • Benefits associated with bonfire management schemes are difficult to value as a wide number of agencies absorb the costs of bonfires including emergency services, roads service, courts service, NIEA and local councils; • Tools: There are a range of tools that can help local representatives/ communities with the change process. The first relate to increasing awareness and understanding amongst young people of the risks associated with illegal bonfires. A number of regions have instigated education and awareness programmes with local schools and local authorities support poster campaigns. Secondly, funding is provided to support family friendly bonfires without alcohol, which are marketed to all; and • The examples benchmarked provide evidence of positive impacts of alternatives to bonfires and safer bonfires strategies. However there are issues on sustainability due to the level of funding involved in some of the schemes: » Other regions noted the need for funding to kick-start the process; and » All areas noted the need to work closely with local communities to devise an implementable alternative and to develop community capacity to enable them to take the process forward. 62 63

5. Community Survey

5.1 As part of the consultation stage, closed on the 13th of October a questionnaire was developed 2010. A number of actions were Introduction specifically to understand the undertaken to distribute the views of the wider community survey as widely as possible. An and individuals on bonfires electronic link to the survey was across sites in the North West. sent to all the contacts held by The questionnaire was designed the Good Relations Officers in to capture information about the each council area. Hard copies respondents’ profile and area; of the survey were given to type of involvement in bonfires; community representatives for knowledge and experiences of wider distribution at the focus bonfires; awareness of issues group session. Local Councillors in around bonfires; impacts within the three areas were provided with and cross-community; suggestions electronic and paper copies and for improvement and any other the survey was publicised in local comments / views around bonfires. papers, radio and television. The survey was officially launched The following section presents the on the 25th of August 2010 and key results of the survey. 64

5.2 5.2.1 Profile of Respondents Key results A total of 208 respondents completed the survey: • Gender: 118 male (57%), 85 female (41%) and 5 N/A (2%); • Council area: 106 Derry~Londonderry (51%), 60 Omagh (29%) and 33 Strabane (16%). 4 respondents indicated ‘Other’ (2%) and 5 did not provide an answer (2%).

Table 5.1: Burning Issues Survey – Gender

Derry~Londonderry Omagh Strabane

No. % No. % No. %

Male 64 60% 28 47% 20 61%

Female 38 36% 32 53% 13 39%

N/A 4 4% 0 0% 0 0%

Total 106 100% 60 100% 33 100%

Source: FGS McClure Watters, September 2010

• Age: respondents from all ages completed the survey, with a majority of 41 to 50 year olds (20%), followed by under 16 year olds (18%) and 31 to 40 year olds (17%). 35% of respondents were under 25 years old. • Community background: 109 Catholic/ Nationalist/ Republican (52%); 90 Protestant/ Loyalist/ Unionist (43%), 9 ‘Other’ and ‘N/A’ (4%).

Derry~LondonderryTable 5.2: Burning Issues Omagh Survey – Community backgroundStrabane

No. % No. % No. %

Catholic/ Nationalist/ 58 55% 22 37% 24 73% Republican

Protestant/ 41 39% 38 63% 8 24% Loyalist/ Unionist

Other 5 5% 0 0% 0 0%

N/A 2 2% 0 0% 1 3%

Total 106 100% 60 100% 33 100%

Source: FGS McClure Watters, September 2010 65

Occupation: 107 employed (51%), 51 in education (24.5%), 23 not economically active (11%), 19 unemployed (9%) and 1 voluntary and community worker (0.5%).

5.2.2 Involvement in Bonfires

Of the 208 respondents, 155 said they had been involved in bonfires (75%), 49 said they had not taken part (23%) and 5 did not specify (2%). Those that had been involved can be split up as follows: • 77 have been involved in bonfires this year (49.7%); and • 78 have been involved in previous years (50.3%), the majority of them in 2009 (28%). The majority of those that have been involved in bonfires (n=155) indicated that their involvement consisted of watching the bonfire (99%), followed by gathering materials (31%), building the bonfire (24%) and other types of involvement (26%), including working in interface areas, diversionary work and other types of community support and development.

By Council area:

Table 5.3: Burning Issues Survey – Have you ever been involved in bonfires?

Derry~Londonderry Omagh Strabane No. % No. % No. %

Yes 82 77% 43 72% 27 82%

No 23 22% 17 28% 6 18%

N/A 1 1% 0 0% 0 0%

Total 106 100% 60 100% 33 100%

Note: 3 respondents of the 155 that indicated that have been involved in bonfires did not specify any Council area. Source: FGS McClure Watters, September 2010 66

Table 5.4: Burning Issues Survey – Have you been involved in bonfires this year?

Derry~Londonderry Omagh Strabane No. % No. % No. %

Yes 50 61% 17 40% 9 33%

No 32 39% 26 60% 18 67%

N/A 0 0% 0 0% 0 0%

Total 82 100% 43 100% 27 100%

Source: FGS McClure Watters, September 2010 Note: Only for those who indicated they have been involved in bonfires (Derry~Londonderry N=82; Omagh N=43; Strabane N=27).

Table 5.5: Burning Issues Survey – Please specify the bonfire(s) you are involved in and how are you involved.

No. of Respondents Watching Gathering materials Building bonfire Other

Derry~Londonderry 98 26 20 22

Irish Street 10 3 0 4

The Fountain 13 6 6 2

Tullyally 1 0 0 1

Drumahoe 3 0 1 2

Newbuildings 3 0 0 0

Clooney Estate 8 5 3 3

Caw 1 1 0 0

Currynierin 4 0 0 0

Lecky Road 2 1 1 1

Creggan 4 1 1 3

William Street 2 0 0 1

Top of the Hill 27 6 5 3

Foyle Rd 2 0 0 1 67

No. of Respondents

Watching Gathering materials Building bonfire Other

Derry~Londonderry 98 26 20 22

Hazel Bank 2 0 0 0

Shantallow 3 0 0 0

Glen 1 0 0 0

Gobnascale 12 3 3 1

Omagh 38 11 8 17

Hospital Road 26 8 5 2

Strathroy (Halloween) 5 2 3 2

Lisanelly (Halloween) 0 1 0 2

Fintona 4 0 0 2 (Denamona Court)

Fintona 1 0 0 2 (Ashfield Gardens)

Mullaghmore 0 0 0 3

CKS (O’Kane Park) 2 0 0 4

Strabane 18 11 9 2

Former Walls Site, 4 2 2 1 Castlederg Glebe Playing 1 0 0 0 Facilities

Carlton Drive, 0 0 0 0 Strabane

Fountain Street, 12 9 7 1 Strabane Allen Park, Donemana 0 0 0 0

Artigarven 1 0 0 0

North West Total 154 48 37 41

Note: Respondents could provide more than one answer. Only for those who indicated they have been involved in bonfires (Derry~Londonderry N=82; Omagh N=43; Strabane N=27). Source: FGS McClure Watters, September 2010 68

Respondents could indicate that they were involved in more than one activity relating to the bonfire, e.g. gathering materials and building; providing a total of more than 208.

5.2.3 Bonfire Organisation

Respondents highlighted that activity associated with the bonfires starts at least one month and up to three months in advance of the bonfire being lit. Respondents noted that the bonfire work is usually organised by individuals (59% of respondents), followed by youth groups (15%), community groups (6%), committee (4%), ex combatants/ paramilitaries (3%) and other (12%). Overall, it seems individuals (informally organised) take the lead in the organisation and development of the bonfire, the bulk of whom are young males in their late teens and early twenties. By Council area:

Table 5.6: Burning Issues Survey – Who organises / coordinates the bonfire work in the area?

Derry~Londonderry (n=82) Omagh (n=43) Strabane (n=27)

No. % No. % No. %

Individuals 54 66% 18 42% 16 59%

Youth Groups 9 11% 8 19% 6 22%

Community Groups 2 2% 6 14% 1 4%

Committee 6 7% 0 0% 0 0% Ex Combatants / 1 1% 4 9% 0 0% Paramilitaries Other 11 13% 6 14% 2 7%

Table 5.7: Burning Issues Survey – What is their role?

Derry~Londonderry (n=82) Omagh (n=43) Strabane (n=27) No. % No. % No. % Community 15 18% 4 9% 2 7% consultation

Material collection 52 63% 26 60% 18 67%

Construction 35 43% 21 49% 13 48% Contacts with the 3 4% 0 0% 2 7% landowner Event management 6 7% 10 23% 2 7% (e.g. marshalling) Public liability 5 6% 2 5% 1 4%

Risk assessment 7 9% 6 14% 2 7% Contacts with 11 13% 4 9% 0 0% emergency services

Other roles 10 12% 2 5% 3 11%

5.2.4 Materials Used

The results confirm that all sorts of materials are used and burnt in the bonfires, as follows: • Wood and wooden pallets (99% of respondents); • Furniture / mattresses (69% of respondents); • Tyres (57% of respondents); • Other trade waste (38% of respondents); • Household waste materials (32% of respondents); • Garden waste (19% of respondents); and • White goods (3% of respondents).

Figure 5.1 presents the materials used and burnt in the bonfires, according to the respondents by Council area.

Figure 5.1: Burning Issues Survey – What materials are used? 100 100

90 90

80 80

70 70

60 60

50 50

40 40

30 30

20 20

10 10

0 0

Tyres waste pallets Matresses Furniture / Furniture Household Other trade White goods (Fridges etc.) (Fridges Garden waste Other material waste materials Wood / Wooden Wooden / Wood

5.2.5 Additional Activities

When asked what other activities take place as well as the bonfires, the main response was bands/music.

Table 5.8: Burning Issues Survey – Are any additional activities arranged around the bonfire?

Derry~Londonderry (n=82) Omagh (n=43) Strabane(n=27)

No. % No. % No. %

Face Painting 10 12% 3 7% 2 7%

Bouncy castle 12 15% 2 5% 1 4% Barbeques 13 16% 11 26% 1 4% /food stalls Bands/music 29 35% 22 51% 5 19%

Other* 23 28% 6 14% 7 26%

* Other: the majority of respondents who stated ‘other’ mentioned drinking and a few mentioned drugs as well. 72

5.2.6 Rules

When asked about whether there were any rules set for their bonfires, respondents replied as shown below:

Table 5.9: Burning Issues Survey – Are there any rules established regarding the bonfire at present?

Derry~Londonderry (n=82) Omagh (n=43) Strabane (n=27)

No. % No. % No. % Only wood to be 25 30% 11 26% 5 19% burnt No tyres to be burnt 22 27% 17 40% 4 15%

Materials not to be collected before a 5 6% 5 12% 1 4% particular date No burning of flags/ 2 2% 2 5% 2 7% emblems Bonfire to be a 6 7% 2 5% 3 11% specified height

Bonfire to be a specific distance 13 16% 12 28% 6 22% away from the nearest property

Other rules* 3 4% 1 2% 0 0%

Don’t know 24 29% 8 19% 7 26%

* The majority of respondents that selected ‘Other rules’ specified ‘No rules established’. In addition, the following comments were provided: • “It is not supervised so anything goes, we have tried to engage with them in the past regarding the burning of tyres but it was a waste of time”. • “Have had meetings with the young adults and explained about the dangers of burning certain materials. They originally agreed not to, but unfortunately they didn’t stick to it”. • “This rule (only wood to be burnt) is repeatedly broken”. 73

5.2.7 Legislation

Figure 5.2: Burning Issues Survey – Are you aware of any laws regarding bonfires in the area?

Don’t know 28% No

48%

25% Yes

Note: Of the 155 respondents who stated they were involved with a bonfire 145 answered this question. Source: FGS McClure Watters, September 2010

Table 5.10: Burning Issues Survey – Are you aware of any laws regarding bonfires in the area?

Derry~Londonderry (n=82) Omagh (n=43) Strabane (n=27)

No. % No. % No. %

Yes 25 30% 11 26% 5 19%

No 23 28% 20 47% 5 19%

Don’t know 5 6% 5 12% 1 4%

Those who said they were aware of any laws regarding bonfires in the area indicated: • Tyres not to be burnt (x7); • Distance (from community centre, homes, buildings) (x3); • Smokeless zone (x2); • Burning of tyres, storing of materials at Housing Executive property; • Health and safety, Council by-laws, the powers to remove a bonfire if it is in breach of legislation; • Illegal to steal goods and burn on private property; and • Need to keep a safe height and distance away from property.

5.2.8 Communities

Table 5.11a: Burning Issues Survey – What communities are served / represented by this particular bonfire?

Percentage of Frequency Respondents (n=146)

Catholic/ Nationalist/ Republican 59 40%

Protestant/ Loyalist/ Unionist 75 51%

Elderly people 17 12%

Young people 45 31%

Minority groups 9 6%

All of the community 22 15%

Other groups* 5 3%

Note: Respondents could provide more than one answer. Only for those who indicated they have been involved in bonfires (N=155) – of them, 146 provided an answer. Source: FGS McClure Watters, September 2010 75

* Other groups specified as follows: • “Depend on which side of the river you are on and in what area”; • “Catholics would be welcome to come and watch if they so wished”; • “Youth workers”; and • “None”.

Table 5.11b: Burning Issues Survey – What communities are served / represented by this particular bonfire?

Derry~Londonderry (n=82) Omagh (n=43) Strabane (n=27)

No. % No. % No. %

Catholic/ Nationalist/ 35 43% 9 21% 14 52% Republican Protestant/ Loyalist/ 37 45% 30 70% 7 26% Unionist Elderly people 6 7% 9 21% 2 7%

Young people 19 23% 16 37% 9 33%

Minority groups 5 6% 4 9% 0 0%

All of the community 10 12% 8 19% 4 15%

Other groups 3 4% 0 0% 2 7%

5.2.9 Flags and Emblems

Table 5.12: Burning Issues Survey – Are there any of the following flags or emblems burnt on the bonfire?

Derry~Londonderry (n=82) Omagh (n=43) Strabane (n=27) No. % No. % No. %

Tricolour 32 39% 15 35% 5 19%

Union 30 37% 1 2% 13 48%

Northern Ireland/ Ulster/ Red hand 33 40% 0 0% 9 33% of Ulster

UDA 27 33% 0 0% 9 33%

UFF 22 27% 0 0% 8 30%

UVF 26 32% 0 0% 10 37%

YCV 16 20% 0 0% 4 15%

Scottish Saltire 8 10% 0 0% 0 0%

Starry Plough 10 12% 0 0% 1 4%

Sunburst 5 6% 0 0% 0 0%

Election Posters 26 32% 6 14% 2 7%

GAA flags/shirts 14 17% 6 14% 2 7% Glasgow Rangers 27 33% 0 0% 6 22% shirts Glasgow Celtic shirts 17 21% 1 2% 0 0% An effigy or 4 5% 1 2% 0 0% mannequin

Other 7 9% 7 16% 2 7%

Figure 5.3: Burning Issues Survey – How do you feel when a flag you believe represents your community or nationality is burnt?

Very offended Not offended at all 20% 22%

18% Slightly offended

22%

Offended 18% Neither / Nor

Note: Only for those who indicated they have been involved in bonfires (N=155) – of them, 142 provided an answer. Source: FGS McClure Watters, September 2010

Table 5.13: Burning Issues Survey – How do you feel when a flag you believe represents your community or nationality is burnt?

Derry~Londonderry (n=78) Omagh (n=35) Strabane (n=26) No. % No. % No. %

Not offended at all 12 15% 8 23% 7 27%

Slightly offended 19 24% 5 14% 2 8%

Neither / nor 15 19% 6 17% 5 19%

Offended 16 21% 10 29% 5 19%

Very offended 16 21% 6 17% 7 27%

Total 78 100% 35 100% 26 100%

Note: Only for those who indicated they have been involved in bonfires and provided an answer to this question (Derry~Londonderry N=78; Omagh N=35; Strabane N=26). Source: FGS McClure Watters, September 2010 78

5.2.10 Community Relations

Figure 5.4: Burning Issues Survey – How would you describe community relations generally within your own community?

N/A Don’t know 5% Very positive Very negative 8% 20%

Negative 7%

17% Neither / Nor 38% Positive

Source: FGS McClure Watters, September 2010

Table 5.14: Burning Issues Survey – How would you describe community relations generally within your own community?

Derry~Londonderry Omagh Strabane

No. % No. % No. %

Very positive 18 17% 11 18% 10 30%

Positive 29 27% 38 63% 10 30%

Neither / nor 24 23% 5 8% 4 12%

Negative 10 9% 0 0% 4 12%

Very negative 9 8% 0 0% 1 3%

Don’t know 10 9% 3 5% 4 12%

N/A 6 6% 3 5% 0 0%

Total 106 100% 60 100% 33 100%

Source: FGS McClure Watters, September 2010 79

Very positive – Comments: • (no comments) Positive – Comments: • “This can vary according to interface issues or tensions”. Neither / nor – Comments: • “There is little or no community harmony in the area I live, community spirit, infrastructure, lacking”. • “Some Residents in the area are felt let down by our organisation because the bonfires are still going on. Most of the residents wouldn’t really care as long as it doesn’t have an impact on them”. Negative – Comments: • “There is lack of community relations and cutbacks are not making it any better”. • “Interface violence”. • “I believe it is one rule for the side of the community and another rule for my community”. • “Difficult. At day to day level grand but sectarian tendencies occur in summer and a select few force these views on the rest of their own community. E.g. flags outside private housing developments (in all PUL areas of Waterside and Newbuildings)” • “Some people don`t welcome bonfires”. • “Teenagers will not engage with community group”. Very negative – Comments: • “Bonfires are for minority of people... create such a mess and should be made illegal”. • “Over the summer months in particular when tensions are high community relations are very negative and sectarian attitudes are very visible!”. • “Bonfires should be stopped in all communities. They are the starting point for most of the trouble we face throughout the rest of the year”. • “Lots of sectarianism”. • “People here don`t want it”. Don’t know – Comments: • “I live in a mixed area where community relations per se are not addressed – there is no discussion about it which may be an issue in itself”. 80

Figure 5.5: Burning Issues Survey – How would you describe community relations between Protestants/ Loyalists/ Unionists and Catholics/ Nationalists/ Republicans in the bonfire local area?

Very positive N/A

1% Positive 9% 18%

Don’t know 17%

Neither / Nor 22%

20%

Very negative 13% Negative

Source: FGS McClure Watters, September 2010 81

Table 5.15: Burning Issues Survey – How would you describe community relations between Protestants/ Loyalists/ Unionists and Catholics/ Nationalists/ Republicans in the bonfire local area?

Derry~Londonderry Omagh Strabane No. % No. % No. %

Very positive 1 1% 1 2% 1 3% Positive 13 12% 18 30% 4 12% Neither / nor 17 16% 16 27% 11 33% Negative 18 17% 3 5% 4 12% Very negative 31 29% 5 8% 3 9% Don’t know 16 15% 11 18% 9 27% N/A 10 9% 6 10% 1 3%

Total 106 100% 60 100% 33 100%

Source: FGS McClure Watters, September 2010

Very positive – Comments: • (no comments) Positive – Comments: • “There is an element of sectarianism but this is not representative of the entire community”. • “Again this can vary according to what is happening in NI and any relevant issues ongoing between the two communities”. Neither / nor – Comments: • “Some good work goes on but is set back at times by sporadic interface violence”. Negative – Comments: • “Both sides just want confrontation”. • “Coming up to marching season June – September it becomes very sectarian on both sides due to flag stealing”. • “I still feel there is a lot of hate between these groups of Loyalists and Republicans”. • “Not much integration, low level at best”. • “The Bonfires are always the high point of trouble between our two areas. Small things like flag stealing can and has caused major violent clashes in the area”. • “Ritualised burning of each other’s flags on bonfires doesn't signal much respect between different groups”. 82

Very negative – Comments: • “They hate each other and have no respect for what each other believe in”. • “Because of where we live as a community, we are at the interface area, tensions rise as early as March, April, so due to sectarian tensions in the area community relations tend to drop to a low”. • “Tensions are very high every year for both of July and August which in this day and age is ridiculous”. • “Hatred of each other's cultures”. • “No respect on our culture”. • “Very tense and they steal flags to burn, football shirts and try to light each other’s bonfires”. • “Ban all bonfires as they smack of bigotry from both communities destroy the environment and delay progress towards a normal society”. Don’t know – Comments: • “I feel the burning of any flag is disrespectful and does nothing for community relations”.

5.2.11 Impacts of Bonfires

Figure 5.6: Burning Issues Survey – Do you think bonfires have a positive or negative impact on the relations between Protestant/ Loyalist/ Unionist and Catholic/ Nationalist/ Republican communities in the bonfire local area?

N/A Positive impact

9% 12%

38% 41%

No impact

Negative impact

Source: FGS McClure Watters, September 2010 83

Table 5.16: Burning Issues Survey – Do you think bonfires have a positive or negative impact on the relations between Protestant/ Loyalist/ Unionist and Catholic/ Nationalist/ Republican communities in the bonfire local area?

Derry~Londonderry Omagh Strabane

No. % No. % No. %

Positive impact 12 11% 6 10% 6 18%

Negative impact 56 53% 12 20% 12 36%

No impact 28 26% 36 60% 14 42%

N/A 10 9% 6 10% 1 3%

Total 106 100% 60 100% 33 100%

Source: FGS McClure Watters, September 2010

Positive impact – Comments: • “Positive when properly organised into an event”. • “They are culture”. • “It is a way of bringing all the community together – some people complain about the bonfire however on the night in question there was over a thousand people gathered to watch the event so it is still a very important part of the PUL culture”. Negative impact – Comments: • “They only heighten tension”. • “Anti-social behaviour, create mess”. • “Causes tension”. • “It is just another way of showing hatred”. • “It causes trouble amongst those who are bigoted”. • “It divides people and makes some fearful”. • “Divisive impact, bonfires are often unregulated and most have no adult input. Regarding bonfires which are held around local festivals/ dates (i.e. not Halloween) these tend to perpetuate sectarian myths and help breed the idea of persecution and fear of 'the other'. Generally not a positive experience in cross-community relations for impressionable youths”. • “It is just an excuse for young people to drink and take drugs and this leads on to other problems later on the night”. 84

• “Images of people cheering while your national flag is burnt doesn't exactly warm you to them”. • “They have a negative effect on the community that host them”. • “Relations generally run well until the summer season – then community workers are back to square one – hard to reach have no interest in diversionary activities during times of heightened tensions and bonfires”. • “Many people who build & attend bonfires don't even know what they're supposed to be celebrating!”. • “Real meaning of the bonfires – particularly in nationalist areas – is lost; they seem to be lit now only because ‘the other side’ is seen to get financial assistance for building theirs”. • “Separates community and we steal each other flags”. • “Burning of flags to mark territory”.

5.2.12 Cross-Community Relations

Table 5.17a: Burning Issues Survey – How would you compare community relations between Protestants/ Loyalists/ Unionists and Catholics/ Nationalists/ Republicans where you live to two years ago?

Frequency Percentage

Far better 13 6%

Better 48 23%

No difference 109 52%

Worse 15 7%

Far worse 12 6%

N/A 11 5%

Total 208 100%

Source: FGS McClure Watters, September 2010 85

Table 5.17b: Burning Issues Survey – How would you compare community relations between Protestants/ Loyalists/ Unionists and Catholics/ Nationalists/ Republicans where you live to two years ago?

Derry~Londonderry Omagh Strabane

No. % No. % No. %

Far better 8 8% 3 5% 1 3%

Better 17 16% 21 35% 8 24%

No difference 55 52% 34 57% 16 48%

Worse 13 12% 0 0% 1 3%

Far worse 5 5% 1 2% 6 18%

N/A 8 8% 1 2% 1 3%

Total 106 100% 60 100% 33 100%

Source: FGS McClure Watters, September 2010

Far better • “People rose to a challenge, and realised dialogue was the way forward, Irish Street and Gobnascale are a prime example”. • “Peace process bedding down, various Peace projects having an impact, hurt gets less raw with time, events like the Maiden City festival etc.”. • “People are networking more and there are more opportunities for both sides to come together”. • “Never a problem”. • “Better working relationships”. • “Less reports of trouble”. 86

Better • “July and August are the months that the tensions are at their worst”. • “Political progress”. • “There is a lot of work going on in the Bogside/ Bishop St area. The same is not happening within the Fountain”. • “Reduction in interface violence due to the work put in by people on the ground at a community level in the Bogside for example”. • “The work that volunteer interface workers did, unfortunately this has been hijacked by mainstream political parties who can use tensions like a tap – turning it on and off at will”. • “Community workers & the Peace Process have helped people to move on”. • “More opportunities for young people to mix”. • “Because of work done by community reps to address the parading issues”. • “Cross community programmes”. • “The cross community programmes that have been run”. • “More cross community work getting done”. • “Slightly better”. • “Improvement in relationships”. • “Less aggression, more integration”. No difference • “I still feel we are a long way from things being better, more should be done to integrate the two main religions”. • “All the good work done by local communities are undone because of the interface violence caused by these celebrations”. • “People are still sectarian”. • “Nothing has changed”. • “They have no respect for one another”. Worse • “Not sure I’m new to the area, but believe things have got worse in the past two years”. • “It just seems worse because I didn`t know the relationship earlier”. • “Minority community in Londonderry not tolerated”. Far worse • “Because sectarianism has taken over from the guns and bombs”. 87

Table 5.18a: Burning Issues Survey – Will relations between Protestants/ Loyalists/ Unionists and Catholics/ Nationalists/ Republicans in two years time be better than now, the same or worse?

Frequency Percentage

Far better 9 4%

Better 49 24%

No difference 105 50%

Worse 13 6%

Far worse 10 5%

N/A 22 11%

Total 208 100%

Source: FGS McClure Watters, September 2010

Table 5.18b: Burning Issues Survey – Will relations between Protestants/ Loyalists/ Unionists and Catholics/ Nationalists/ Republicans in two years time be better than now, the same or worse?

Derry~Londonderry Omagh Strabane

No. % No. % No. %

Far better 2 2% 3 5% 3 9%

Better 22 21% 16 27% 10 30%

No difference 57 54% 33 55% 13 39%

Worse 10 9% 1 2% 1 3%

Far worse 2 2% 2 3% 5 15%

N/A 13 12% 5 8% 1 3%

Total 106 100% 60 100% 33 100%

Source: FGS McClure Watters, September 2010 88

Far better – Comments: • “In the absence of widespread 'political' violence people are more open to moving out of their comfort zones, people are less wary and more prepared to believe the 'other side' are acting in good faith”. • “I feel the city of culture will open many doors for people to come together as will the new peace bridge”. • “A trust is building”. • “Everyone lives in harmony, good areas”. Better – Comments: • “I would like to hope that they would be better as the country cannot keep going backwards”. • “I’m an optimist! Education in the communities and good relations in schools are beginning to make a difference and sectarian attitudes are beginning to change with younger generations”. • “If resources and recognition is given to people on the ground who actually deal with these issues at the coal face they will be better”. • “A lot of good work with communities ongoing through partnerships, council, good relations etc.”. • “As the Peace process develops community relations will improve”. • “We are going in the right direction”. • “Because of the good youth work”. • “Getting to know one another”. No difference – Comments: • “People do not forgive or forget easily”. • “Until the issue of sectarianism is challenged, and the communities take responsibility, free from political interference; only then can things improve”. • “Younger generations are watching these scenes at bonfires and will grow up thinking that it is ok to be involved in such activities”. • “Lack of leadership”. • “This is outside the bonfire situation, general political situation”. Worse – Comments: • “Young people antagonising each other”. • “The way things are at present because there are people who do not want to move on and just want to keep the tensions ongoing”. Far worse – Comments: • “Because hatred is tolerated by the state and police”. • “Not enough money is going into youth work to provide single identity and cross community education programmes”. • “Because of youth and vandalism”. 89

5.2.13 Impacts in the Local Area

Table 5.19a: Burning Issues Survey – What specific impacts do you feel the bonfire has in your local area? Have occurred in the past 12 months?

Frequency Percentage of Respondents (n=181) Community 28 15% cohesion Positive diversion 30 17% for young people Social gathering 97 54% Pressure on 63 35% emergency services Injury to individuals 50 28% Illegal dumping of 78 43% waste materials Substance abuse 79 44% (alcohol / drugs) Anti-social behaviour related 85 47% with the event

Air pollution 75 41%

Fun day 45 25%

Damage to property 59 33%

Sectarian violence 45 25% Intimidation to 55 30% residents in the area Blockage of roads 30 17% Celebration of 58 32% culture Other 12 7%

Total – –

Note: Respondents could provide more than one answer. Source: FGS McClure Watters, September 2010 90

Table 5.19b: Burning Issues Survey – What specific impacts do you feel the bonfire has in your local area? Have occurred in the past 12 months?

Derry~Londonderry (n=106) Omagh (n=60) Strabane (n=33)

No. % No. % No. % Community 15 14% 11 18% 2 6% cohesion Positive diversion 15 14% 12 20% 3 9% for young people

Social gathering 49 46% 36 60% 12 36%

Pressure on 38 36% 14 23% 10 30% emergency services Injury to individuals 38 36% 7 12% 5 15% Illegal dumping of 50 47% 15 25% 10 30% waste materials Substance abuse 52 49% 13 22% 12 36% (alcohol / drugs) Anti-social behaviour related 50 47% 16 27% 16 48% with the event

Air pollution 45 42% 16 27% 12 36%

Fun day 19 18% 18 30% 7 21%

Damage to property 37 35% 10 17% 9 27%

Sectarian violence 36 34% 3 5% 3 9%

Intimidation to residents in the 36 34% 9 15% 8 24% area

Blockage of roads 22 21% 3 5% 4 12% Celebration of 32 30% 18 30% 6 18% culture

Other 7 7% 1 2% 3 9%

Note: Respondents could provide more than one answer. Source: FGS McClure Watters, September 2010 91

5.2.14 Concerns within Community

Table 5.20a: Burning Issues Survey – Are you aware of some people in your local community who are concerned about having bonfires? Do you know why they might feel like this?

Frequency Percentage of Respondents (n=123)

Yes 82 67%

No 34 28%

Neither/ nor and Other Comments 7 5%

Total 123 100%

Source: FGS McClure Watters, September 2010

Table 5.20b: Burning Issues Survey – Are you aware of some people in your local community who are concerned about having bonfires? Do you know why they might feel like this?

Derry~Londonderry (n=106) Omagh (n=60) Strabane (n=33)

No. % No. % No. %

Yes 53 50% 20 33% 7 21%

No 14 13% 16 27% 4 12% Neither/ nor and 5 5% 0 0% 2 6% Other Comments N/A 34 32% 24 40% 20 61%

Total 106 100% 60 100% 33 100%

Source: FGS McClure Watters, September 2010 92

Regarding concerns about bonfires within their local community, respondents specified the following: • “They feel afraid”. • “Yes, because of the anti-environmental, anti-community, sectarian, un-supervised and dangerous nature of these events”. • “They may be parents and fear for their children’s safety or their houses”. • “There are some within are fearful, especially the elderly, and the vulnerable. Alcohol, loud music, and the large crowds play a major part, which creates fear to our senior citizen community”. • “Intimidation and destruction of property main concerns”. • “Many residents complain about the mess during collection for the bonfire and the aftermath. A lot of time and effort had to be spent to ensure illegal dumping and the dumping of non-wood was kept to a minimum; this was very time consuming but we had concerns for the health of the many pensioners and people with poor health in the area. Also concerns around the heat and ash damaging buildings and windows. Many young people were injured with nails, glass and other dangerous materials lying around. Young people 'guarding' materials would often leave small camp fires still lit and unattended as children played in the area. Trees in the community were cut down as fire material! A young man was seriously beaten and left in hospital the night of the bonfire”. Those who provided other comments: • “Do not feel it is a proper way to celebrate our culture”. • “Gives them an opportunity to be a 'community leader'?”. • “I can understand this because in the recent past bonfires have suffered from the lack of organisation in the past they were an event for the whole community”. • “As a youth worker I feel bonfires serve no purpose to our community”. • “As long as they are not near property, they are not unduly alarmed”. • “Most residents just want a quiet life and couldn't care less about bonfires!”. 93

5.2.15 Responsibilities

Table 5.21: Burning Issues Survey – Do you know who is responsible for cleaning up after the bonfire?

Frequency Percentage of Respondents (n=181)

Landowner 21 12%

People who organise bonfire 34 19%

Participants 12 7%

Fire Service 8 4%

Local Council 124 69% Northern Ireland Housing Executive 25 14% (NIHE) Roads Service 11 6%

Other 11 6%

Note: Respondents could provide more than one answer. Source: FGS McClure Watters, September 2010

Table 5.22: Burning Issues Survey – Who do you think should be required to clean up after the bonfire?

Frequency Percentage of Respondents (n=194)

Landowner 16 8%

People who organise bonfire 123 63%

Participants 59 30%

Fire Service 3 2%

Local Council 58 30% Northern Ireland Housing Executive 11 6% (NIHE) Roads Service 8 4%

Other 11 6%

Note: Respondents could provide more than one answer. Source: FGS McClure Watters, September 2010 94

Table 5.23: Burning Issues Survey – Who do you think should cover the cost of cleaning up the bonfire?

Frequency Percentage of Respondents (n=190)

Landowner 15 8%

People who organise bonfire 105 55%

Participants 55 29%

Fire Service 1 1%

Local Council 66 35% Northern Ireland Housing Executive 11 6% (NIHE) Roads Service 5 3%

Other 5 3%

Note: Respondents could provide more than one answer. Source: FGS McClure Watters, September 2010

Table 5.24: Burning Issues Survey – Who do you think should cover the cost of the insurance of the bonfire?

Frequency Percentage of Respondents (n=189)

Landowner 22 12%

People who organise bonfire 104 55%

Participants 47 25%

Fire Service 3 2%

Local Council 67 35% Northern Ireland Housing Executive 26 14% (NIHE) Roads Service 11 6%

Other 12 6%

Note: Respondents could provide more than one answer. Source: FGS McClure Watters, September 2010 95

Table 5.25: Burning Issues Survey – Have you considered who is responsible if someone gets injured?

Frequency Percentage of Respondents (n=178) Landowner 27 15%

People who organise bonfire 87 49%

Participants 46 26%

Fire Service 5 3%

Local Council 35 20% Northern Ireland Housing Executive 9 5% (NIHE) Roads Service 2 1%

Other 22 12%

Note: Respondents could provide more than one answer. Source: FGS McClure Watters, September 2010

5.2.16 Suggestions for Improvement

Figure 5.7: Burning Issues Survey – Is there anything about your local bonfire you would like to change?

Establish a cultural “fun day” Less alcohol consumption Cancel bonfire Better managed (cleaner) bonfire site Less anti-social behaviour Establish alternatives to bonfires Fewer flags on display Other* Cages for base of construction Have a bonfire beacon Music / party ends earlier Less noise Smaller bonfire Artistic frontage to bonfire 0% 5% 10% 15% 20% 25% 30% 35% 40%

Note: Respondents could provide more than one answer. A total of 175 respondents selected one or more options. Source: FGS McClure Watters, September 2010 96

* Other: • “Most of the above and cancel them if the conditions aren't met”. • “There should not be any flags on any side displayed as this continues I feel the hate between the different groups”. • “Ban them”. • “Work should be done with bonfire organisers to address the issue of burning people’s flags – nothing wrong with bonfires but burning flags is offensive”. • “Loyalists have already promoted the pyramid cage for bonfires and received a good response. However, DCC rejected it on cost grounds”. • “No burning of flags from 'the other side'”. • “Moved further away from the people`s homes which get destroyed every year. There are oil tanks in their back garden, the fire is only a few yards away from them and this should not be allowed at all also because of health and safety”. • “Omagh CSP gave money to Blair Memorial last Halloween to reduce anti-social behaviour. Could this be done for July? Didn`t need it before as bonfires hadn`t been held for couple of years. Some project money for working toward next July would be great. Ulster Scots agency involvement”. • “Bonfires is a tradition so they will always go on, but they could be done in a more organised manner with help / funding from voluntary and statutory agencies”. 97

By Council area: Table 5.26: Burning Issues Survey – Is there anything about your local bonfire you would like to change?

Derry~Londonderry (n=82) Omagh (n=43) Strabane (n=27)

No. % No. % No. % Artistic frontage to 6 7% 1 2% 1 4% bonfire Establish alternatives to 37 45% 9 21% 6 22% bonfires

Cancel bonfire 37 45% 12 28% 6 22% Cages for base of 17 21% 2 5% 2 7% construction Less alcohol 35 43% 12 28% 8 30% consumption Less anti-social 32 39% 13 30% 10 37% behaviour Less noise 13 16% 2 5% 2 7% Music/party ends 13 16% 3 7% 1 4% earlier Establish a cultural 35 43% 23 53% 8 30% ‘fun day’ Smaller bonfire 7 9% 6 14% 2 7% Have a bonfire 13 16% 3 7% 5 19% beacon Better managed (cleaner) bonfire 30 37% 14 33% 9 33% site Fewer flags on 26 32% 3 7% 1 4% display

Other 19 23% 7 16% 9 33%

Note: Respondents could provide more than one answer. Source: FGS McClure Watters, September 2010 98

5.2.17 Alternatives to Bonfires

Table 5.27: Burning Issues Survey – Have you been involved in any alternative to bonfires?

Frequency Percentage of Respondents (n=184)

Yes 130 71%

No 54 29%

Total 184 100%

Source: FGS McClure Watters, September 2010

Those who said that had been involved in any alternative(s) to bonfires specified the following:

Alternatives to bonfires

What How

Derry~Londonderry Funding received and worked through Fun days. community organisation. Music events, fun days, trips away, overnight Part of community festival. trips, sports competitions. In the Woodvale Road in Belfast a Nothing came from this as the Youth thought presentation was given on the issues of this was an infringement on their culture, bonfires and the Beacon was proposed as the and their bonfire ~ “as our fathers and their best option, it was agreed to go back to our fathers did what we are now doing”. community with the proposal.

Gasyard Féile events. Not specified.

I was involved with other residents to organise this however the young people in Street parties and fundays. my immediate area could not avail of this as young people from the estate decided to have their bonfire outside our houses. We put a suggestion to Council 2 years ago about the cage which we had seen in Belfast and was told it wouldn’t work because it We approached local council about it. would cost too much so they dismissed it straight away. 99

Alternatives to bonfires

What How

Derry~Londonderry

Local Council was asked 2 years ago to discuss the cage bonfire but dismissed it By talking to local council. straight away.

Beacon. Talk with local community.

Fundraised and held sports and fun festival Fun days. over the two day period. But this is very expensive.

See feile programme. Not specified.

Organise themselves, individually; 50 house on a street – 5 pounds a house, over a period Street parties in Creggan – Bonfires banned. of time, 2 volunteers, band and each house contributes to food.

Organised residents and young people away Street parties, carnival parades, fun days etc. from negative action into positive. Attended the Gasyard feile. Not specified. Visited friends and relatives and enjoyed Attended Council Firework display. ourselves without the need of the professional ‘community & voluntary’ jobsworths. Street parties. Not specified. Managed a planned programme in Not specified. consultation with young people. Meet Council regularly. Not specified.

Build the bonfire. Not specified.

Meeting. Not specified.

Attend meetings. Not specified.

Local festival. Not specified.

Summer scheme. With the Whistle project. 100

Alternatives to bonfires

What How Omagh Halloween Discos and Parties. CSP funding/Work with Community Grounds. Assisted Council in delivering event safety Briefing seminar to groups that applied for information. funding for Halloween events. Night time football. Not specified.

Community event. Not specified.

Trip + talks about firework and alcohol. CSP paid for it– Halloween.

CSP funded us to do series of evening events to keep some young people out of trouble. These worked really well and we really Not specified. appreciate the assistance. The removal of bonfire materials by CSP agencies has helped.

Took children away on a trip. Not specified.

Fun events. Not specified.

Trip with band to Scotland. Not specified.

Youth club trips. Not specified.

Small grants= CSP funding within ODC. Not specified.

We take kids away so they can`t build one. Trip away so that they are not in the area. Grant from CSP to provide party for younger Organise diversity activities. children and outing for older children. Taking children to go to other places. Children’s club and their parents co-operation. Party, disco, taking kids to council organised Not specified. fireworks. Strabane Fun day and fireworks display. Applied for funding to local council

Community festivals. Via Council. Community events run by the local Developing partnership. communities.

£15,000 on festival that over 5,000 people Organised a Halloween festival for town attended; involved youth in workshops / dance centre to detract from bonfires. / art / etc. Alternative to collecting for fires. 101

Figure 5.8: Burning Issues Survey – What ideas do you have as to how community relations between Protestants / Loyalists / Unionists and Catholics / Nationalists / Republicans in your local area could be improved?

Cross-cultural meetings / events / activities... Young people support / involvement / work Organise more events / activities / ... Integrated education Community development Communication Investment in community development Education Institutional support Ban bonfires More facillities Create alternatives to bonfires 0% 5% 10% 15% 20% 25% 30% 35% 40%

Notes: Responses have been categorised – one respondent may fall under more than one category. A total of 85 respondents provided an answer. Source: FGS McClure Watters, September 2010 102

Table 5.28: Burning Issues Survey – What ideas do you have as to how community relations between Protestants/ Loyalists/ Unionists and Catholics/ Nationalists/ Republicans in your local area could be improved?

Derry~Londonderry (n=57) Omagh (n=18) Strabane (n=9) No. % No. % No. %

Cross-community meetings / events 25 44% 6 33% 3 33% / activities / partnerships

Young people support / 7 12% 3 17% 0 0% involvement / work

Organise more events / activities / workshops 6 11% 3 17% 1 11% / educational programme Integrated 3 5% 2 11% 1 11% education Other 3 5% 2 11% 1 11%

Communication 2 4% 2 11% 1 11%

Investment in community 2 4% 1 6% 1 11% development

Ban bonfires 1 2% 2 11% 0 0%

Institutional support / multi- 2 4% 0 0% 1 11% agency support

Education 2 4% 1 6% 0 0%

Create alternatives 1 2% 0 0% 0 0% to bonfires

More facilities 1 2% 0 0% 0 0%

Notes: responses have been categorised – one respondent may fall under more than one category. Percentage uses the total number of respondents by area as a total – 57 respondents from Derry~Londonderry; 18 from Omagh; 9 from Strabane. Source: FGS McClure Watters, September 2010 103

Cross-cultural meetings / events / activities / partnerships • ”Cross cultural meetings”. • ”A joint community festival”. • ”More activities that could be held jointly”. • “Get these groups to see the similarities between these groups hold city centre events that bring the two communities together i.e. use the Guildhall Square more”. • “Joint participation at community events that are well organised”. • “Cultural awareness between participants from both communities and a realisation of concerns of the opposite community”. • “More inclusive approach to both Catholic and Protestant celebrations. Concentrate on similarities rather than differences”. Young people support / involvement / work • “Start community relations programmes when youths are a lot younger. More money to youth groups to help them run programmes to take young people away from bonfires”. • “Pump money into youth work [not the Western Education & Library Board]; do a needs analysis on young people and have them know their history properly”. • “More single identity work and cross community engagement, especially young people”. • “Team games between youth”. • “More events for both communities starting at a young age group”. Organise more events / activities / workshops / educational programme • “An educational programme could be organised to help others understand what the tradition of bonfires is all about”. • “Community awareness and diversity workshops which are fun and have an impact”. • “More community run events”. • “Better understanding of traditions. We think we know what these are but do we really know?”. • “Through understanding culture. Through shared learning, music, dance, getting fit together”. Integrated education • “Mixed education”.

Community development • “Integration and not segregation of communities”. • “Building the capacity within the community and then building relations in a sustained way across the community”. • “More socialisation – currently happening on ad hoc basis”. 104

Investment in community development • “Funding via community relations and community development”. Ban bonfires • “Stop them then people can get on with their lives”. • “No flags, no bonfires”. • “Ban marching, bonfires, parades”. Institutional support • “Working strategically with all bodies requiring an input – educate all not just youth”. • “Partnerships including all stakeholders Housing Executive, Council, PSNI, community representatives”. • “More support from the Council”.

Table 5.29a: Burning Issues Survey – How could the bonfire help in this regard?

Frequency Percentage of Respondents (n=79)

No help 41 52%

Organised / better managed bonfires 16 20%

Cross-community event 10 13%

Alternatives to bonfires 5 6%

Cultural awareness of tradition 5 6%

Less sectarian (no flags / emblems) 5 6%

Policy / Legislative regulation 2 3%

Depends on what Community wants 1 1%

Competition 1 1%

Total 79 –

Note: responses have been categorised – one respondent may fall under more than one category. Source: FGS McClure Watters, September 2010 105

Table 5.29b: Burning Issues Survey – How could the bonfire help in this regard?

Derry~Londonderry (n=48) Omagh (n=19) Strabane (n=9)

No. % No. % No. %

No help 26 54% 8 42% 5 56% Organised / better 4 8% 4 21% 3 33% managed bonfires Cross-community 6 13% 3 16% 1 11% event Alternatives to 2 4% 3 16% 0 0% bonfires Cultural awareness 3 6% 1 5% 0 0% of tradition Less sectarian (no 3 6% 0 0% 0 0% flags / emblems) Policy / Legislative 2 4% 0 0% 0 0% regulation Depends on what 1 2% 0 0% 0 0% Community wants

Competition 1 2% 0 0% 0 0%

Note: Responses have been categorised – one respondent may fall under more than one category. Percentage uses the total number of respondents by area as a total – 48 respondents from Derry~Londonderry; 19 from Omagh; 9 from Strabane. Source: FGS McClure Watters, September 2010

Organised / better managed bonfires • “Organised trips”. • “Cultural Diversity should be embraced and if bonfires became more acceptable by others, then organisers would feel less need to be provocative”. Cross-community event • “By having a joint festival, sharing each other’s History, Identity, song and dance”. • “Bring people together”. • “Invite people from cross communities to the bonfire”. • “Having a mixed bonfire with no flags, drugs etc.”. • “Made a family and cross community event”. • “Make it a fun gathering for families”. • “Bringing people together”. 106

• “Don't make it one sided”. • “Make it a cross-community event”. • “Bring people together”. Alternatives to bonfires • “Maybe link in with protestant group providing an alternative to bonfires”. • “Don`t have a bonfire, have fun-day instead”. Cultural awareness of tradition • “We could talk about why we have them, why other communities such as the Chinese have them, etc.”. • “Take away sectarian emblems and the bonfire could help. More education on reasons for the bonfire events”. • “History about the bonfire”. • “Education in cultural diversity”. Less sectarian (no flags / emblems) • “Less sectarian”. • “No flags”. • “Make it a family and cultural day, move away from sectarian motives!”. Competition • “Each community has a bonfire so perhaps a competition for the best organised, best attended and therefore best event might work. This would also include the removal after the event”.

Table 5.30a: Burning Issues Survey – Have you any other comments on bonfires in your local area?

Percentage of Comments – Category Frequency Respondents (n=68) Ban / stop bonfires 33 49%

Alternatives / better management needed 10 15%

Keep bonfires 9 13%

Other 8 12%

Concerns about impacts 3 4%

Cultural tradition to be preserved and better managed 3 4%

Positive actions needed beyond bonfires 2 3%

Total 68 100%

Source: FGS McClure Watters, September 2010 107

Table 5.30b: Burning Issues Survey – Have you any other comments on bonfires in your local area?

Derry~Londonderry (n=46) Omagh (n=13) Strabane (n=5)

No. % No. % No. %

Ban / stop bonfires 21 46% 7 54% 4 80%

Alternatives / better management 8 17% 1 8% 0 0% needed

Keep bonfires 6 13% 3 23% 0 0%

Other 6 13% 2 15% 0 0% Concerns about 1 2% 0 0% 1 20% impacts Cultural tradition to be preserved and 3 7% 0 0% 0 0% better managed

Positive actions needed beyond 1 2% 0 0% 0 0% bonfires

Note: Percentage uses the total number of respondents by area as a total – 46 respondents from Derry~Londonderry; 13 from Omagh; 5 from Strabane. Source: FGS McClure Watters, September 2010

Alternatives / better management needed. Comments: • “Alternatives have to be sought. It has fallen on local community workers to take the lead in either preventing or steering the bonfires. They have neither the powers to prevent nor not the resources to offer alternatives. They also have to take on board what all their community wants, and if there is a split as to whether the fires go ahead well that could cause serious problems. That’s why all landowners should be held responsible for any damage caused”. • “There is a place for a properly organised/ facilitated bonfire as a one off annual event“. • “My area is Ballymagroarty. Need the local youth workers to take a more active role in providing alternatives to bonfires and arranging a public meeting to discuss the issue with residents“. • “Long may they continue, but with a safety and family friendly ethos at its heart“. 108

• “Whilst there are problems with bonfires there is also potential in that if properly organised it can be a point of excitement, enjoyment and indeed an education (why it happens) for the wider community“. • “Glad to see councils are finally taking the lead on bonfire initiatives“. • “People of lower socio-economic groups seem to be drawn to bonfires, particularly young men. Diverse programmes, programmes addressing identity and culture need mainstreaming, e.g. in schools as accredited programmes“. • “More community involvement“. • “Seen by young people as a way to mark their culture and something to do during the holiday season. Any alternative needs to target these same young people. Older people don't really care“. • “We have developed a safe site for the fire, and young people ensure its run well“. • “Local Councils should encourage cultural diversity celebrations. Difference should be seen as a positive thing and not negative. Perhaps if councils were to take an interest in all of the people who reside in their areas and embrace all communities, then in return this positive attitude would be responded to in a positive way too“.

5.3 A total of 208 respondents completed the survey with a range of age Summary groups, socio-economic status, and both Protestant and Catholic community backgrounds. The responses provide an example of the of Key Findings different perspectives and opinions on bonfires and their impact on the local communities in the North West. The key findings of the survey are as follows: • Age factor – young people are more involved in bonfires (gathering materials and building) and tend to have a more positive opinion of them. Younger respondents were also less aware of concerns within the local community and were more likely to see the bonfire as a social gathering / fun day, than older respondents. In contrast, they tend to see relations between Protestant and Catholic communities as more negative than the older respondents. Older respondents were more aware of the issues associated with bonfires, such as air pollution, anti-social behaviour, substance abuse, illegal dumping of waste materials, etc. • Impacts of bonfires in local area – 54% of respondents said that the impact of the bonfire was that it was a ‘social gathering’ with the added potential of anti-social behaviour (47% of respondents stated that the greatest impact of the bonfire was the anti-social behaviour related with the event). In addition, 44% of respondents stated that substance abuse took place at the bonfire and 43% said that illegal dumping of waste materials was the impact on the local area. • Impacts of bonfires on relations between communities – 42% of respondents noted that bonfires have a negative impact on the 109

relations between Protestant and Catholic communities in the bonfire local areas. Poor community relations were shown through breaking laws, burning flags and emblems, general anti-social behaviour, alcohol consumption and a tense atmosphere, etc. However, 38% of respondents said bonfires have no impact. • Community relations between communities – 52% of respondents felt that there was no difference in community relations between Protestants and Catholics than two years ago, and no difference is expected in two years time (50%). However, almost a quarter of respondents believe relations are better (23%) and will be better (24%). • Concerns within local community – respondents were aware of some people in their local community that are concerned about having bonfires (67%). The groups indicated include old people, parents and the community in general; and specific issues include air pollution, anti-social behaviour and substance abuse, noise and the mess left, and damage to property. • Responsibility and public liability – 69% of the respondents believed that the Local council is responsible for cleaning up the bonfire, but also highlighted that people who organise the bonfire should be required to clean up (63%), as well as cover the cost of cleaning up (55%) and the insurance (55%). 49% felt that the bonfire organisers are responsible if someone gets injured. • Suggestions for improvement – it is clear from the survey results that some action is needed regarding the management of bonfires. The respondents said they would like the authorities to establish a cultural fun day (39%), followed by less alcohol consumption (33%), cancel the bonfire (33%) and better managed bonfire site (32%). Conversely, artistic frontage to bonfire (5%), smaller bonfire (9%) or have a bonfire beacon (12%) were less popular suggestions put forward. • Relations between communities – The most common response to how community relations could be improved was ‘cross-cultural meetings’, (40%). This was followed by ‘young people’s involvement and support’ (15%) and ‘organisation of more events, activities, workshops, educational programme’ (13%). Overall, the survey showed differences in how younger people and older people view bonfires. The results also show a need for action in regard to bonfires management and their impact on community relations. Whilst many respondents noted that bonfires should be stopped no respondents noted who they felt would be responsible for enforcing this. Also a number of respondents noted that it would not be possible to stop bonfires in their area and a bonfire management strategy would be more practical. 110 111

6. Action plans

6.1 This section provides a review of each of the 15 bonfire sites which were selected for closer review by the Steering Group. These are: Introduction

Irish Street; The Fountain; Tullyally; Newbuildings; Clooney Estate; Derry City Council Currynierin; Creggan and Bogside; Top of the Hill / Gobnascale; and Area Shantallow / Moss Park. Omagh District Hospital Road; Strathroy; Fintona (Denamona Court and Ashfield Council Area Gardens); and Mullaghmore. Strabane District Ballycolman; and Fountain Street, Strabane. Council Area

The Action Plans for each of the 15 sites provides information on: • Location; • Profile of the area; • Ownership; • Consultation feedback by site; and • Action Plan. In addition, survey key findings by Council area are presented at the beginning of each section to provide an overview of specific issues associated with the bonfires in those areas. 112

6.2 6.2.1 Background Derry~ Derry City Council Position Londonderry Area In the Derry City Council area bonfires are lit in loyalist areas on the 11th July, in early August in connection with the Relief of Derry celebrations and on the 15th August in nationalist areas. They vary in size and numbers with most activity occurring during August. Following a report to the Councils Environmental Services Committee in 2007 an interagency group was formed in May 2007 in attempt to address anti-social and environmental problems associated with bonfires. In September 2009 this group was expanded to include members from the community and voluntary sector where bonfires have been located. The group meets 4 times a year in the lead up and through the bonfire season. Derry City Council has no formal bonfire management / funding scheme in place however through the Derry City Grant Aid and Community Safety Partnership a number of community and voluntary groups have applied and received funding for addressing bonfire management and for diversionary activity throughout the summer months. The Council has worked with a number of communities through the bonfires group to give advice, encourage the safe and sustainable management of bonfires or when requested by local communities sought to remove bonfires where they are not wanted. Ultimately it is up to the communities to decide the future direction for bonfires in their area and Council remains ready to help when and where they can to ensure there is an understanding of diverse local traditions and attitudes. In looking at bonfire issues across the Derry City Council area a number of points should be made: 1. The storage of material on open land, particular trade waste such as pallets and tyres could be regarded as illegal under waste legislation. Under this same legislation Council would be breaching its legal responsibilities if it was to provide waste wood including wooden pallets to those engaged in building bonfires. Smoke from the uncontrolled burning of any waste material is also toxic. 2. The storage and subsequent erection of a bonfire on public or private land could lead to personal injury claims so organisers and landowners need to be mindful of possible legal liabilities in the event of a claim. It is currently unclear if insurance companies would be in a position to provide appropriate insurance. 3. Council has a legal duty to ensure the health and safety of its employees and contractors and on occasions are unable to remove material without clear community support on the ground at time of removal. 113

4. It is the landowners’ legal responsibility to clean up after a bonfire held on their land. It is therefore not automatically a council responsibility to clean up, or to cover the costs of clean up, after a bonfire not held on its land. Council may however choose to show good will and work with communities or other agencies on clean-up after bonfires. Costs Council spends approximately £7,000 a year on direct costs employing contractors to remove materials before and after bonfires. As well as these direct contractor costs material removed prior to being burnt costs approximately £65 per tonne and £4 a tyre. Council staff are also directed away from normal duties and clean up activity can amount to £100 per hour to employ a vehicle and staff to clean up sites. It also costs Derry City Council £600 annually in order to protect a Council building next to one specific bonfire site. The Community Safety Partnership has funded 6 projects through its Summer Splash campaign at a cost of £6,000. This has involved several hundred young people and aims to tackle anti-social behaviour during the summer. Costs are also incurred by other agencies in call outs, clean up and subsequent repair of damaged property or materials. The following gives some indication of costs provide by local agencies: • Northern Ireland Fire and Rescue Service – average cost, per Fire Appliance, to attend an incident is £314.4 per hour or part thereof; • Northern Ireland Housing Executive report that in one area this year twenty trees were destroyed at the cost of £200 per tree i.e. £4,000. For the last calendar year, NIHE report that the costs of the removal of bonfire material across the Derry City Council area to be £24,850; and • Department of Regional Development Roads Service report that the costs of damage/repair and clean up associated with bonfires at the flyover over the last few years were: » 2007 – £276,000; » 2008 – £110,00; and » 2009 – £34,000. This money had to be directed away from other budgets.

6.2.2 Survey Feedback

In order to provide a backdrop to the following action plans, the paragraphs below summarise the key findings of the survey for the Derry City Council area. A total of 106 respondents from Derry~Londonderry completed the survey, ranging across all age groups and socioeconomic status, and 114

both Protestant and Catholic community backgrounds. Their responses are an example of the different perspectives and opinions on bonfires and their impact on the local communities within the area. The key findings of the survey are as follows: • Impacts of bonfires in local area – substance abuse was the specific impact of bonfires in local areas that was indicated the most (49%), followed by illegal dumping of waste materials (47%), anti-social behaviour related with the event (47%) and social gathering (46%). • Impacts of bonfires on relations between communities – bonfires have a negative impact on the relations between Protestant and Catholic communities in the bonfire local areas (53% of respondents). • Community relations between communities – from the results, there is no difference in community relations between Protestants and Catholics to two years ago (52%), and no difference is expected in two years time (54%). 16% respondents believe relations are better and 21% that will be better. • Concerns within local community – respondents were aware of some people in their local community that are concerned about having bonfires (74%). This was particularly higher in Derry~Londonderry area in comparison to Omagh (56%) and Strabane (54%). • Responsibility and public liability – the respondents indicated the Local council is responsible for cleaning up the bonfire (71%), but highlighted that people who organise the bonfire should be required to clean up (61%), as well as cover the cost of cleaning up (53%) and the insurance (52%), and responsible if someone gets injured (43%). This was followed by the participants themselves and the Local Council. • Suggestions for improvement – it is clear from the survey results that some action is needed regarding the management of bonfires. The respondents said they would like the authorities to establish alternatives to bonfires and cancel the bonfire (45% each), followed by less alcohol consumption and establish a cultural fun day (43% each), and less anti-social behaviour (39%). Conversely, artistic frontage to bonfire (7%) and smaller bonfire (9%) or have a bonfire beacon (16%) were the options less suggested. • Relations between communities – ‘cross-cultural meetings, events and partnerships’ was the idea the respondents indicated the most regarding how community relations in their area could be improved (44%). This was followed by ‘young people involvement and support’ and ‘organisiation of more events, activities, workshops, educational programme’. Over half of those who suggested ideas for improvement said the bonfire cannot help in this regard (54%), followed by those who said it could help through cross-community events (13%) and better organised / managed events (8%). 115

6.2.3 Profile of Bonfire Sites in Derry~Londonderry Area

This section now presents the profile information and the consultation feedback on each of the selected bonfire sites in the Derry~Londonderry area. Action plans have been drawn up relating to each bonfire site based on focus groups, consultations and survey results for that area. The consultation findings for each area are reflective of the discussions held during focus groups in the area.

Irish Street

Profile

Date Early August (varies from year to year)

Bonfire location Open space in front of Community Centre on Bann Drive

Land Owner Derry City Council

Ward Victoria

Population (No.) 2,564 Neighbouring Holly Mount, Clondermott, Ebrington, Lisnagelvin, The Diamond. ward(s) Community background (%) 68.2 Catholic / 30.5 Protestant and Other Christian in the Ward

No. of surveys 14 returned

Sources: NINIS / Derry City Council

Views of Focus Group Respondents The focus group was held in the Irish Street Community Association premises and comprised 1 male and 5 female residents – all adults. The group all stated that they did not want a bonfire in the area; that it was something that the young people wanted and organised. The meeting was advertised in the Community Centre’s newsletter and the young people directly involved in the bonfire were also advised by word of mouth about the meeting, however, they chose not to attend. The research team were informed that young people worked positively with Community Centre staff, attending other bonfire meetings, promoting a certain degree of health & safety and agreeing to keep and move materials away from centre and walking paths. 116

The team were also informed about young people supporting Centre staff in the safe removal of unsuitable materials.

Date of bonfire & Early August aligned with Apprentice Boy’s parade. Site. Note anything Collection starts in May. Not lit until 12 midnight. specific relating to Feeling of competition to have a bigger bonfire than Clooney Estate. the site that is of importance

People involved in Organised by a core group of 8 to 10 young males (late teens and arranging/ building early 20s), with a larger group of 40 to 50 involved overall with the the bonfire and who organisation. Younger boys collect materials. attends A wide range of people of all ages from the Waterside attend the burning of the bonfire.

Community Support Local residents at the consultation session (adults rather than young for the Bonfire people) noted that the majority of locals did not want a bonfire, but that young people did want it. They did not have any survey evidence to back this up, so it is based on their perceptions which may or may not be valid. However anecdotal evidence from local community workers suggests that many adult residents support the bonfire and encourage young people to build one. Young people were specifically informed about the session but chose not to attend.

Materials that are Wood, not tyres current year due to working project with the burnt Community Association to ensure that the correct materials were burnt. The majority of residents contribute material to the bonfire, often using the site as an excuse to dump illegally. Sinn Fein posters burnt.

Impact on Anti-social behaviour, alcohol, fights, etc. The group reported that older community people felt intimidated by the behaviour of young males at the bonfire. relations/any Majority of community do not want bonfire but are scared of saying incidences of anything against. They steal other side flags and vice versa. anti-social behaviour etc.

Any examples of Petrol bombs, alcohol, sectarian attacks (interface area). injuries, calls to emergency services etc.

Health and safety DCC cleans up the bonfire site. considerations Respondents indicated that “the bonfire has no insurance and is including insurance, lawless”. liability, marshalling etc. 117

Alternatives Inclusive festival for the whole community could be an option, suggested by some slightly older community representatives. The group indicated that young people do not agree as this would take away the drinking and sectarian edge. Association got DCC funding to do diversionary work prior to the bonfire night, but young people did not take part.

Action Plan No remedy – social gathering and important to the young people; you suggestions from are expected to take part if you live in the estate. Young people hard to consultees reach and show a lack of respect for traditions other than their own. People feel intimidated and therefore feel unable to do anything about it

Work already The local Community Association noted the work they are doing to try underway by the to make the bonfire safer – with some success – as they are less likely Council and others to use tyres etc. than they did in the past. DCC provided monies to support diversionary work and part of the funding allocated was spent on a family festival event in the afternoon of the bonfire day. No times or dates could be agreed at the time for diversionary work out of the estate as young people were busy building and preparing for the bonfire; and the remaining funding was allocated to treat the young men who supported the Community Centre’s work. Parents find it difficult to stop their kids and there was a feeling that that is just the way it is.

Action Plan This is an example of a bonfire which is led by a number of young males, who have no desire to have it made safe and who enjoy the tension caused by the bonfire around the July/ August period. It is also an example of a bonfire which others in the local area, who if they are young, feel the need to take part in, so as not to be seen to be different. There is also evidence that there is some support for not having a bonfire, although with only 5 people turning up to the consultation who said this; there was not significant evidence to support this. This bonfire will be a difficult situation to manage and the focus needs to be on further ongoing development of local relationships, building awareness with the local community on the issues regarding safety and to try and get local people to come forward who will help develop a way ahead. The first stage of the process will be to try and identify representatives in the local area who wish to see a change in the current situation and who are willing to support the change process. There are clearly at least a small number, since they took the time to turn up to our consultation sessions. There is also a local community association– Irish Street Community Association. Together they need to work together to make others in the area aware of the issue and develop a ground swell of support to achieve positive change with the current bonfire situation. 118

This will take time, but it is something that needs to happen from within the community itself. External bodies can provide support, but without this local community commitment and leadership this situation cannot start to be resolved. This situation is particularly difficult as there was a view expressed that local people reported feeling intimidated by the anti-social behaviour surrounding the bonfire, but there are examples elsewhere in the Council area where others have been in a similar situation but who are working to develop a positive way forward and local representatives may benefit from sharing experiences with such people. The local representatives need to come together and develop a bonfire strategy, which meets the needs of their area. This would require getting some level of engagement with the young people who have avoided participating in diversionary activities so far. Strategically they need to decide does the overall community want a bonfire (a comprehensive community survey could be conducted by community representatives to check this). If they want one – they need to take responsibility and help manage it. If they do not want one, they need to work with local people of all ages, the Council and other public authorities to help make this happen (see the Bogside for an example of how this has been done). The second stage is to identify those young people who are taking the lead on the development of the bonfire and to build relationships with them ensuring that they are involved in the development and implementation of the bonfire strategy. This will take time as our consultation has identified there was no clear support for change from young people according to the perceptions of the focus group participants, and there is a keenness to keep the current tension and antisocial behaviour levels going. There is a feeling of competition with the Clooney Estate according to the views of the focus group participants, so one lever may be to consider providing specific support along the same lines as that provided to Clooney and using their experiences as a selling mechanism to those in the Irish Street site. Ideas such as these need to be developed with the local community and by them, so that ideas from other areas are not being forced on to them as this will not work. 119

The Fountain

Profile

Date 11th July

Bonfire location On hardstanding at top of Hawkin Street

Land Owner Private landowner

Ward The Diamond

Population (No.) 2,551 Neighbouring Holly Mount, Victoria (Derry), Ebrington, Strand (Derry), Brandywell. ward(s) Community background (%) in 81.0 Catholic / 17.7 Protestant and Other Christian the Ward

No. of surveys 14 returned

Sources: NINIS / Derry City Council

Views of Focus Group Respondents The group was arranged by and held in Cathedral Youth Club / The Fountain and comprised 1 female and 6 males, generally aged in mid teens (1 participant was an older adult who was involved with the Youth Club). Overall, the young people felt concerned that the Council had an agenda of trying to get rid of the bonfire. The bonfire is organised by a core group of about 12 (young males – seemingly early to mid-teens); with a larger group of around 40 – 50 being involved overall with the organisation; building, collecting, guarding, of the bonfire. 120

Date of bonfire & There are two bonfires each year – 11th July (Battle of the Boyne) and Site. Note anything early August (Relief of Londonderry). Collection of materials starts in specific relating to May / June. the site that is of importance

People involved in Local community, high-level of attendance (e.g. Scottish visitors). arranging/ building Used to be cross-community, now single identity. the bonfire and who attends

Materials that are Materials include wood and tyres burnt. Young people have difficulty to burnt get materials and some feeling of frustration at the Council for making it difficult to get wood for the bonfire. The bonfire site needs to be guarded from nationalist communities. Flags are burnt (Tri-colour / Starry Plough & Union Jack!)

Community Support Those at the session felt there is high acceptance of the bonfire in the area. They noted that a recent survey in the area indicated that 85% of respondents were in favour of the bonfire.

Impact on Cross-community relations are tense in the area and there are incidents community related to the bonfire (riots, fights, anti-social behaviour). Those at relations/any the focus group believed that Catholics want to get rid of Protestant incidences of anti- bonfires. There is concern that the bonfire will be stopped and that social behaviour etc. ‘others’ are trying to ensure that all the land is developed so there is no space for a bonfire.

Any examples of There was only one incident in the current year: a drunken man injuries, calls to (Catholic) that was pushed out of the area. Riots / fights / anti-social emergency services behaviour. etc.

Health and safety Community representatives have linked in with statutory agencies considerations (DCC Environmental Health, NIFRS) to discuss issues around bonfires. including insurance, DCC clears up bonfire site. liability, marshalling etc.

Alternatives Tried to obtain funding to make it more of a festival / family event, but there is a feeling that DCC are ‘not on their side’. The group understood that DCC had suggested using a beacon as an alternative to a real bonfire, but they did not agree. The bonfire is a ‘priority’ in the Fountain. 121

Action Plan An option would be to landscape the area where the bonfire is held, suggestions with mobile units with flowers; then at bonfire time they could be rolled away to make way. Other suggestions included: • More positive press coverage. • Funding would be required to support a festival. • Provision of wood pallets by DCC. • Better communication between DCC and interested / relevant agencies; with input and involvement of young people.

The Fountain bonfire is one where the local representatives felt that it was an important part of their cultural heritage, and to do away with it would be seen to be putting their culture under siege. The bonfire provides an outlet to ensure that their culture is not forgotten. They highlighted strong support for the bonfire, but also noted that it is the cause of tension and antisocial behaviour in the local area. Action Plan The representatives provided ideas for how the bonfire could be developed and these include developing it more as a festival with funding support from the DCC. They also want young people to get involved in the development of these ideas. The way forward therefore would be to continue on down this path, with the local community developing a festival proposal with the support of the wider community and this should then be discussed with the Council. It would be appropriate to identify those in the local area who wish to be part of the local organising committee and to get this established. They then should be the conduit for ensuring that young people and others are brought into the consultation process about the next stage and to develop a festival which can promote their heritage whilst also being managed safely. Young males in the area are key to this process (similar to other bonfire sites) and therefore work needs to happen through for example those at school (through colleges, schools); for those who are unemployed through Job Benefit offices/ community and voluntary sector particularly those providers of support to the unemployed etc. to increase awareness of the dangers and the need to manage bonfires safely. There is a need for the DCC to be clear that they have no agenda regarding shutting down bonfires, if they are well run and managed and meet specific health & safety requirements. The Council should set out their requirements and ensure that any funding provided is linked to performance against their needs. Key requirements are likely to include: having a safe bonfire, minimal impact on the environment (no tyres), minimal disruption to the local community– no provocative use of emblems/ flags etc. to incite problems with other communities, the event insured by either bonfire organiser/ landowner etc. 122

It is possible that statutory bodies such as WELB or DSD could provide support to activities that provide a diversion to the young people in the area and/or make the bonfire safer. The research team were informed that the site on which the bonfire is held has recently been sold to a local charity, as landowners they should also be involved in the process.

Tullyally

Profile

Date 11th July and early August (varies from year to year)

Bonfire location On green area beside playing pitches

Land Owner Derry City Council

Ward Clondermott

Population (No.) 2,897 Neighbouring Holly Mount, Altnagelvin, Victoria (Derry), Lisnagelvin. ward(s) Community background (%) in 68.0 Catholic / 31.4 Protestant and Other the Ward

No. of surveys 1 returned

Sources: NINIS / Derry City Council

Views of Focus Group Respondents The group was attended by 12 members of the local community: 9 male (aged 11 – 22) and 3 female (one aged 18 and 2 aged 25). It was arranged by and held in Tullyally & District Development Group. 123

Date of bonfire & There are two bonfires each year – July 11th and early August – the Site. Note anything August bonfire is usually a bigger event. They are held on the same site specific relating to each year, which is a piece of grass next to a football pitch and is council the site that is of owned. The bonfires are lit at 11pm and burn until 6am the following importance morning.

People involved in Materials are collected for approximately one month prior to the bonfire arranging/ building by the young men in the community – aged 12-25. The July bonfire the bonfire and who is mostly attended by young people. There is a considerably larger attends attendance at the August bonfire. Members of all age groups in the community attend this bonfire including adults and parents with young children. These groups tend to leave earlier and the young people will stay until the following morning.

Materials that are Materials typically include pallets, trees and discarded furniture. White burnt goods occasionally get dumped on the site – the community call the council to lift these.

Impact on Tullyally is an interface area and there can be sectarian incidents, community however this has become less frequent in recent years – nationalist relations/any flags are typically burnt on the bonfire. The football club complain about incidences of the damage caused to the football field (although the bonfire is not on anti-social the pitch – but on their grounds). Other than that, there are no strong behaviour etc. community objections to the bonfires. The August one is bigger due to the feeling of needing to compete with a Catholic bonfire which is close to them.

Any examples of The fire brigade were called one year when one young person got injuries, calls to stuck on top of the bonfire when constructing it. The police attend the emergency services bonfires each year to ensure there are no disruptions, but remain on etc. the periphery of the area. This does not create any problems as the community are used to the police presence.

Health and safety More adults attend the August bonfire as it is a larger event and ensure considerations no one gets too close to the bonfire. including There is no insurance for either of the bonfires. Other than scorched insurance, liability, grass on the football pitch, there is little mess created by the July marshalling etc. bonfire. The council clean up after the August bonfire as it is larger and there is more debris left behind.

Alternatives No alternatives have been considered. The council pick up fridges, but they have no other contact with the Council about other options.

Action Plan None. suggestions 124

Action Plan It is the young males 12-25 (once 25 they stop getting involved in building the bonfire), however there is a sense that there are no major problems with this bonfire (except for the Football pitch issue). However, the site is at an interface area and there is tension with a local Catholic bonfire group. This is a situation which needs to be managed to ensure that it doesn’t develop negatively. The action therefore is for the community to consider how they wish to proceed and in particular how damage to the local football pitch can be stopped and tensions managed. Community representatives should consider the benefits of becoming involved in the Council Bonfires Group in order to learn about positive developments elsewhere, the approaches being taken, the sources of funding used and the benefits/ impacts being achieved.

Newbuildings

Profile

Date 11th July and early August (varies from year to year)

Bonfire location On green field adjacent to Primity Crescent; across the River Foyle.

Land Owner Private land

Ward Newbuildings

Population (No.) 3,668 Neighbouring Holly Mount, Creevagh ward(s) Community background (%) 35.5 Catholic / 62.7 Protestant and Other in the Ward

No. of surveys 3 returned

Sources: NINIS / Derry City Council 125

Views of Focus Group Respondents A meeting was held with the Chair of Newbuildings Community Association and one local resident, both male aged 40-50.

Date of bonfire & The area has two bonfires on July 11th and early August. The bonfire site Site. Note anything is on private land (they have consent to use this land, however it has specific relating to been sold for development. It is not anticipated that the site will be built the site that is of on for some time, they do not know where they will move the bonfire to importance in that eventuality). The site is sufficiently far from surrounding houses and does not pose any risk of causing damage.

People involved in The bonfires are organised by the community. They have widespread arranging / building support and each is attended by 1,500 to 2,000 people. The young the bonfire and who males (aged 9-20) collect the materials for the bonfires. Members attends of neighbouring communities that do not have their own bonfire often attend and they are welcomed. The bonfires are part of a larger community celebration which is attended by all the community. The local band marches and they have music and food in the streets. A door-to- door community collection is carried out each year to raise funds for the events. The bonfire is lit at 11pm and all festivities are over by 2am.

Materials that are This typically includes wood and old furniture. They do not burn tyres burnt – this is something the community are very strict about. 126

Impact on There is strong community support for the bonfires and there are no community reported incidents of antisocial behaviour. There were problems in the relations/any past with people dumping unwanted items on the bonfire site, such as incidences of white goods. Young people who work in partnership with the Community anti-social Association erected signs on the site stating that illegal dumpers behaviour etc. would be reported to the police, and the Community Association also highlighted the issue in their community newsletter. This has helped to abate the problem. The bonfire materials are also amassed on the site two weeks in advance which has also help overcome the problems with dumping. If an item does appear on the site, it is dragged off the private land and the council are called to pick it up.

Any examples of A young boy was badly burnt 8-9 years ago. Management of the injuries, calls to bonfires has become stricter in recent years following this. emergency services etc.

Health and safety Adults in the community ensure that the bonfire is constructed in a safe considerations way and ask the fire brigade to come out and check it for dangerous including materials. The area around the bonfire is cordoned off and marshalled insurance, liability, by adults to ensure no one gets too close. The community clean up the marshalling etc. site following the bonfires. They do not have any insurance.

Alternatives The community has not considered any alternatives to bonfires. They feel that the bonfires unite the community and they take a lot of pride in it. They also believe that bonfires should be seen as a positive cultural tradition.

Action Plan The Community representatives appear to have a strong association with this bonfire and as a result are able to manage it reasonably successfully, as based on their feedback there are no significant antisocial behaviour incidents and local adults manage safety issues around the bonfire. This leadership by the Community is welcomed and it is hoped that this can continue. The way forward for this site, would be to continue to develop and deepen relationships between those in the community responsible for the bonfire, the landowner and the Council. As the relationships deepen, the opportunity should be explored to develop the festival option and to celebrate the traditions of the local community more. The lack of insurance needs to be actioned by the community. 127

Clooney Estate

Profile

Date Early August (varies from year to year)

Bonfire location To the rear of Heron Way, Clooney Estate

Land Owner Derry City Council

Ward Ebrington

Population (No.) 3,491 Neighbouring Victoria (DCC), Caw, Strand (DCC), Lisnagelvin, The Diamond, Pennyburn ward(s) Community background (%) 32.9 Catholic / 60.4 Protestant and Other Christian in the Ward

No. of surveys 13 returned

Sources: NINIS / Derry City Council

Views of Focus Group Respondents The meeting was arranged by a representative from the Clooney Estate – Bonfire Management Scheme. It comprised 2 females (a community development worker and an independent consultant who had worked with the group this year on the bonfire management scheme) and 6 males, ranging in age from mid teens (3 boys who had hands on experience with organising the bonfires) to older adults. A key component of this bonfire was the recent development of a Bonfire Management Scheme set up in the past year; which sought to explore means of making the bonfire as safe, inclusive and enjoyable. The group was made up of the local community, those involved in collecting and building the bonfire; as well as older community members who were not so committed to the bonfire experience. The Bonfire Management Scheme sought to explore the cultural and historical context of the bonfires in the Clooney area; it engaged with local statutory bodies such as the Fire & Rescue Service and NIHE; and sought to make this year’s bonfire (i.e. 2010, a more friendly, inclusive, festival, family affair). It met every Tuesday night for 10 weeks and incorporated an educational element as to why the protestant tradition used bonfires within their culture. 128

Date of bonfire & Early August to commemorate the Relief of Derry. Site. Note anything Collection starts in May. specific relating to the site that is of importance

People involved in The bonfire is organised by a core group of 10 to 12 individuals between arranging / building 14 and 20 years old. It was noted that young males are generally the the bonfire and who collectors, ‘mostly those with nothing much to do – i.e. those without attends a job or sport or girlfriends etc.’ There is a rule that whoever works the hardest getting materials for the bonfire, gets to light it. The wider community attends the bonfire.

Materials that are Different materials are used, but not tyres. Tri-colour flag and GAA tops burnt are burnt. The Group felt there is a ‘tit for tat’ mentality about what gets burnt – so for example if a Catholic bonfire burns a protestant symbol, then they will retaliate.

Impact on Location moved 5 years ago due to complaints of PVC windows melting. community The new location is a safer distance from houses. relations/any incidences of anti-social behaviour etc.

Any examples of Less anti-social behaviour in current year, compared to previous years. injuries, calls to emergency services etc.

Health and safety The group felt that the Council should be responsible for cleaning up considerations the bonfire site. There was some discussion around this and a lack of including insurance, clarity at the start. They felt that the Council, NIHE and the participants liability, marshalling should be responsible for injuries. etc. 129

Alternatives The Bonfire Management Scheme was set up last year by Clooney Estate Residents Association to explore means of making the bonfire safer, more enjoyable and inclusive. It met every week for 10 weeks and was made up of young and older people from the local community. It aims to make the bonfire safer and more inclusive. It consulted with Fire and Rescue Service and NIHE. The Bonfire Group are keen to get those who build the bonfire to be acknowledged so that there is ‘less of the cloak and dagger’ approach to it. It is funded by DCC and is a more family focused event – fun evening / barbeque organised from 5pm to 8pm (although bonfire not lit until 12 midnight). It was a success as it was a calmer event; police were not called. They applied for funding (Joseph Rowntree Foundation) for an international trip to see how bonfires are used around the world to celebrate.

Action Plan A beacon is not considered as an option, ‘too small’. suggestions DCC could facilitate marshal bibs, bins and equipment to cordon the bonfire off to make it safer. The group felt that DCC should not ignore bonfires, but need to get more involved in supporting them and assisting in ensuring they are managed safely.

Action Plan The Clooney Bonfire site is seen to be an example of an area which is taking control of its own operation. The discussion on who is liable if someone gets hurt, shows that there are still areas to be developed, but the Group through the Bonfire Management Scheme are starting to address issues about safety, environmental issues and trying to get the wider community involved. It was interesting at the end of the session to see the group debating whether they really needed a bonfire or whether an all-purpose sports pitch would be better (e.g. Bond Street). DCC are to be commended for funding the setting up of a Bonfire Management Scheme by the Clooney Residents Association and the residents for having the forethought to develop the idea and support it. The scheme has involved: • Recruiting younger people involved in bonfires as well as older residents to represent a mix of views on the Group. • A series of sessions were delivered – some of which focused on making those who attended what Protestant heritage is all about. Others developed the festival concept. • Tour of alternative bonfire sites in Belfast. The Bonfire Management Scheme is still in its infancy, but it is clear that the Group feel that it is having some success and there is significant commitment / enthusiasm to making it work. In particular the Group have sought to get all views represented on the Group and they are keen to learn and develop as they go. The Group has a clear sense of purpose and knows the direction in which it wants to head. 130

The critical component to success in Clooney is the Community Leadership and commitment to finding a solution which works for them whilst ensuring they can have a safe, environmental friendly bonfire which does not lead to increased community tensions. The Group needs to keep up the work involved in building relationships with young people involved in the bonfire and finding ways to improve it. The Council should continue to work with the Group to help them identify and overcome obstacles as they arise. The Group are clearly innovative so the ideas should be coming back from them, not others outside the area. However as with the other Groups exposure to other experiences through the Council’s Bonfire Group would help – as would Clooney sharing their considerable experience with others. Each year they should be encouraged to see how much further they can develop their bonfire and if funding is required, then the Council should provide information on where these could be potentially sourced. Clooney has the makings of a good practice project, based on the drive for change coming through from the community itself. The Council and other public sector stakeholders should remain involved to ensure that they can help appropriately should that become necessary.

Currynierin

Profile

Date Early August (varies from year to year)

Bonfire location On green area in front of houses

Land Owner Derry City Council

Ward Altnagelvin

Population (No.) 4,477 Neighbouring Enagh (DCC), Kilfennan, Holly Mount, Clondermot, Lisnagelvin. ward(s) Community background (%) 38.0% Catholic / 59.7% Protestant and Other Christian in the Ward

No. of surveys 4 returned

Sources: NINIS / Derry City Council 131

Views of Focus Group Respondents It was not possible to arrange a focus group in Curryneirin; as such there are no Group consultation findings for this area, however, a representative from the Curryneirin Community Association provided their views.

Date of bonfire & The bonfire is held in August at 12 midnight (14th of August in 2010) Site. Note anything It is noteworthy that a bonfire is lit in Tullyally on the 12th of August specific relating to (Interface area). the site that is of importance.

People involved in The bonfire is organised by young people (up to 25 years old) and arranging/building attended by young people (mostly) and adults. Attendance is estimated the bonfire and who at between 200 and 300 people. attends

Materials that are In the current year, it is estimated that 90% of materials burnt were burnt rubber and tyres. It took up to 7 days to go out. Flags and effigies are burnt (anything British / Scottish) e.g. Union Jack, Red Hand of Ulster.

Impact on Young people see the bonfire as positive, and the community overall is community divided (approx. 60% do not want the bonfire and 40% do). relations/any It has a very negative impact in terms of the mess left, the materials incidences of used, alcohol consumption, fights, and anti-social behaviour in general. anti-social There is rivalry with Tullyally (interface area) as their bonfire is lit 2 days behaviour etc. before. Bonfire has a negative effect on community relations – tenser atmosphere around bonfire celebration period. It is getting worse over the years.

Any examples of Injuries and calls to emergency services are usual, as well as fights, injuries, calls to alcohol consumption and anti-social behaviour. emergency services etc.

Health and safety There is no insurance. Nobody has claimed any injuries / health issues considerations as they may think it is their responsibility if they are hurt. including insurance, liability, marshalling etc. 132

Alternatives in The Currynierin Community House used to run a 3-day festival that place / considered / made the bonfire friendlier, but it required too much money and they potential can’t afford it currently. A one-day festival is run 2 days after the bonfire is lit. A Bonfire Committee was tried, but the bonfire is illegal and if something happened, they would have been legally / financially responsible. Young people were approached to explore alternatives (festival, residential, social activities), but they always broke the agreement and there is not enough funding available. They used to get funding from WELB. When funding is available, they try to take young people away for 3 days.

Action Plan There is a need for a multi-agency approach, response and funding suggestions (DCC, NIHE, DoE, Roads Service and PSNI) – it may be better to invest by the group money and reduce costs of bonfires (calls, clean up, etc.). There is a need for a long term approach to be taken. There is also a need for better management of the bonfire – DCC should take responsibility being the land owner in terms of liability and insurance. More funding should be provided to offer other options / alternatives. There is a lack of sport and recreational facilities that would help to make young people have other interests / options.

Action Plan As it was not possible to arrange a consultation group and there are very few community surveys to provide evidence of the area’s views towards bonfires, this should be a starting point, to ensure there is a clear understanding of what the local community want / need regarding the bonfire. The local community representatives should gather the opinion of around 100 local residents across all age ranges (from aged 12 upwards). A sufficient number of people should be consulted with to ensure that the findings are accepted as representative of those in the local community. From this survey, there should be evidence of the needs of the community and from this appropriate action should be taken. It is recognised that local community representatives have already tried to get a bonfire scheme going, but did not succeed. This indicates that there are a number of people who do want a bonfire and other people who do not. Time should be invested to consider the range of needs in the area, through consultation and the presentation of ideas as to how others are moving forward, the development of a new agreed plan of action for tackling the issues. Community leadership is the starting point and without this action by the Council and other statutory bodies will have limited effect. It would be envisaged that an action plan would be developed and taken forward by the representatives from the Community in association with the Council and other stakeholders to provide appropriate support to help the community implement its 133

findings. The Council should consider providing support and advice to the Community Association in encouraging the young people to engage with them. It is possible that this support could be provided through Good Relations Officers or the Community Safety Partnership.

Creggan and Bogside

Profile

Bogside

Bonfire location William Street – Car park

Land Owner DRD Roads Service

Ward Strand (DCC)

Population (No.) 3,598 Neighbouring Ebrington, Beechwood, Brandywell, Westland, The Diamond, ward(s) Pennyburn, Foyle Springs, Rosemount Community background (%) 90.9% Catholic / 7.3% Protestant and Other Christian in the Ward

Bonfire location Lecky Road (No bonfire this year) – On road around ‘flyover’

Land Owner DRD Roads Service

Ward Brandywell

Population (No.) 2,602 Neighbouring Holly Mount, Strand (DCC), Westland, The Diamond, Crevaagh, ward(s) Creggan South Community background (%) 98.8% Catholic / 0.8% Protestant and Other Christian in the Ward 134

Profile

Bogside

Foyle Road (No bonfire this year – collected material burnt) – Open Bonfire location parkland

Land Owner Derry City Council

Ward The Diamond

Population (No.) 2,551 Neighbouring Holly Mount, Victoria (DCC), Ebrington, Strand (DCC), Brandywell ward(s)

Community 81.0% Catholic / background (%) 17.7% Protestant and Other Christian in the Ward

Sources: NINIS / Derry City Council

Profile

Creggan

Bonfire location Kildrum Gardens – Open stepped embankment

Land Owner NIHE

Ward Creggan South

Population (No.) 2,453 Neighbouring Brandywell, Westland, Crevaagh, Creggan Central ward(s) Community 98.8% Catholic / background (%) 0.9% Protestant and Other Christian in the Ward 135

Profile

Creggan

Bonfire location Inveroe Gardens – Play area

Land Owner Derry City Council

Ward Creggan South

Population (No.) 2,453 Neighbouring Brandywell, Westland, Crevaagh, Creggan Central ward(s) Community background (%) 98.8% Catholic / 0.9% Protestant and Other Christian in the Ward

Bonfire location Blighs Gardens – Open green area

Land Owner NIHE

Ward Westland

Population (No.) 2,288 Neighbouring Strand (DCC), Beechwood, Brandywell, Creggan Central, Creggan South ward(s)

Community background (%) 97.9% Catholic / 1.5% Protestant and Other Christian in the Ward

Sources: NINIS / Derry City Council

Note: 3 respondents indicated that they have been involved in at least one of the bonfires in the Creggan and Bogside areas. Views of Focus Group Respondents A focus group was conducted in the Gasyard Centre in the Bogside and Creggan areas of Derry~Londonderry. The group was attended by 4 females and 5 males (ranging in age from 20s to 60s). Five of the group members were residents and the remaining three worked in the area (one in the neighbourhood management team, one in the Health Forum and one in the Gasyard). The Bogside and Creggan areas are predominantly Catholic. There have been on-going issues with bonfires in the Bogside and Creggan areas until this year when one of the larger ones was stopped due to strong community opposition and the provision of alternatives (community festival). 136

Date of bonfire & Bonfire is held on August 15th each year. There was no bonfire this year Site. Note anything following community opposition due to antisocial behaviour, illegal specific relating to dumping and damage caused by bonfire in preceding years. the site that is of importance

People involved in The bonfire was collected for and constructed by young men in the area arranging / building (aged 12 – early 20s). It was attended mainly by young people from the the bonfire and who area and from other areas in Derry~Londonderry that do not have their attends own bonfire. Other age groups in the community did not attend as they felt intimidated by the behaviour of the young people.

Materials that are Wood, dumped furniture and household goods and tyres. burnt

Impact on There was strong community opposition to the bonfire as getting community bigger and bigger each year. It was not managed, they were burning relations/any Unionist flags and the anti-social behaviour was becoming more of incidences of an issue each year. In addition, the houses in Dove Gardens had just anti-social been renovated by a local housing association and new residents had behaviour etc. moved in. The bonfire site was on housing association land very close to the new houses, which have timber frames and gas central heating. The community felt it would be too dangerous to allow a bonfire to go ahead given the health and safety risks and levels of antisocial behaviour that had taken place in preceding years. There is one bonfire that has been causing particular problems (“one up on the hill”) and the young people involved will not engage with community workers or youth leaders.

Any examples of There is very little police presence in the area, this has left community injuries, calls to leaders to deal with anti-social behaviour in the area. There was a emergency services particular incident two years ago when a bonfire was lit on a main road etc. under a flyover and caused thousands of pounds of damage. From 2001 to 2009 it has cost £420,000 to repair the Lecky Road flyover following bonfires.

Health and safety DCC cleaned up after the bonfire. considerations There was no insurance for the bonfire including insurance, liability, marshalling etc. 137

Alternatives Two years ago, a community survey was conducted on the issue. Approximately 80% of residents were opposed to the bonfire, many of the remaining 20% who did not object did so on the provision that it was not in their area. The community began to engage with the young people and explain the risks of what they were doing and the impact it was having on their community. This year, the Féile (an annual weeklong festival of arts, cultural and community organised activity) was moved from July to August as an alternative to the Bonfire. There were a series of interventions in the lead up to the Féile for young people, in particular involving them in the building of floats. A number of young people attempted to collect for a bonfire, but each time materials were collected, the community called the council and have them uplifted – this demoralised the young people and they eventually gave up. The Neighbourhood Renewal Partnership also worked in conjunction with the council to arrange an additional bulk uplift round in July (there was previously only one in December). This enables households to discard furniture and other materials that would have previously been given to or taken by the young people for the bonfire. The Féile created a community atmosphere in the community and the bonfire was not missed. It has also successfully managed to engage young men in the area who would have previously been hard-to-reach.

Action Plan • Council continue to provide regular bulk uplift services for the area; suggestions and • Provide more recreation facilities for the 12-19 age group (there are currently no services for this age group in the area).

Action Plan The Bogside Bonfire provides learning that may be applicable for other sites. The community provided clear leadership that a bonfire this year was not acceptable and they worked with the local authorities to ensure that any attempt to set up a bonfire was quickly stopped. Young people have been involved in the development of a way ahead and they are now involved in the Féile. The community generally feel more pride in their area and this is generating a feeling of well being. The Action plan for the area is for the Community to continue to develop as they have been doing. This will require the ongoing work that it started this year, educating young people on the risks and ensuring that no bonfire was allowed to get started. It will also need to work closely with the Council as in the past. The Council should maintain its commitment to uplifting any bonfire materials next year should they be deposited. 138

However the focus should now be on continued relationship building between the local communities and all the public sector stakeholders to review ongoing needs and to offer support for gaps in provision where necessary. The Community needs to retain this sense of empowerment and pride they have in their local area, in order to continue to develop positive impacts for the area. The Féile should continue to be supported as an alternative to the bonfire and young people especially to be targeted regarding their involvement. The action plan developed here will need to take account of the ongoing issues with Creggan bonfires. All local landowners including the Council shoul continue to work with local community groups to address issues such as illegal dumping to prevent anti-social behaviour and pollution.

Top of the Hill / Gobnascale

Profile

Date 15th August

Bonfire location Open parkland

Land Owner Derry City Council

Ward Victoria

Population (No.) 2,564 Neighbouring Holly Mount, Clondermott, Ebrington, Lisnagelvin, The Diamond ward(s) Community background (%) 68.2 Catholic/ 30.5 Protestant and Other Christian in the Ward

No. of surveys 27 returned

Sources: NINIS / Derry City Council

Views of Focus Group Respondents The meeting was arranged by a community worker from The Top of the Hill 2010 Project and consisted of a group of (9) young males aged 12-15. They were very clear that they felt they were entitled to have a bonfire. 139

Date of bonfire & The bonfire is held on the 14th August to commemorate the vigil of the Site. Note anything virgin Mary. specific relating to the site that is of importance

People involved in Young people organise the bonfire and the collection is undertaken by arranging / building the youngest males. Around 200 young people attend the bonfire. the bonfire and who attends

Materials that are Materials burnt include wood and tyres: “make the bonfire bigger, burnt everyone can see black smoke”. Obtaining materials is getting harder. Flags are burnt.

Impact on The bonfire location was changed from middle of the estate to a field community behind the park because the community did not want it. relations/any The young people at the session felt there was high support for the incidences of bonfire – this however was disputed by other consultees. anti-social Young people drink and socialise, night out or “open air rave”. behaviour etc. Older people reported that there is an intimidating atmosphere. This bonfire is linked to the bonfire in Irish Street – the sense was that one could not be stopped without stopping the other one.

Any examples of There are fights and health and safety issues, but these are part of the injuries, calls to ‘thrill’ of attending a bonfire emergency services etc.

Health and safety The group was not clear about who would be responsible if something considerations went wrong. After consideration the assumption was made that the including insurance, Council would be responsible. liability, marshalling etc.

Alternatives None suggested.

Action Plan DCC should provide wood pallets. Parents should not be involved. suggestions Influence by Irish Street bonfire (“The only way to stop the bonfire here is to stop it in Irish Street also”).

This session demonstrated that the young people consulted with have little awareness of the wider community feelings towards the bonfire and that they didn’t much care as to what these opinions were. They were focused on having a bonfire as their right and to have “a bit of craic” even if this meant fights and other anti-social behaviour. 140

It was understood from the community workers, that the wider community are not supportive of the bonfire due to the antisocial behaviour, fights etc. and the intimidation that goes on around it. However there is a need to survey the whole community to support this anecdotal feedback. Action Plan The actions here are very similar to those set out for Irish Street. It is essential to identify a number of local people who wish to be part of any solution to the current bonfire problem and who could form a bonfire group. As the Bogside, it would be useful to undertake a complete community consultation to fully determine the level of support for the bonfire. This group needs to involve the young people as well as those from all other parts of the community. The focus should be on either seeking to shut down the bonfire or make it manageable. The strategy to be followed should be devised by the community with support from the Council and other relevant statutory bodies. The actions needed to implement the strategy depend on the strategy developed by the community.

Shantallow

Profile

Date Mid August

Bonfire location 1 Moss Park – Green open space

Land Owner 1 NIHE

Bonfire location 2 Glengalliagh Road – Open space

Land Owner 2 n/a

Ward Shantallow West

Population (No.) 6,406 Neighbouring Culmore, Carn Hill, Crevaagh, Springtown ward(s)

Community background (%) 97.0 Catholic / 2.3 Protestant and Other Christian in the Ward

Sources: NINIS / Derry City Council 141

Note: 3 respondents to the survey indicated that they have been involved in at least one of the bonfires in Shantallow. Views of Focus Group Respondents This session was held with 6 young people aged 12 to 14 from Shantallow area, and organised by a community worker.

Shantallow Moss Park

Date of bonfire & Bonfire held on the 15th Bonfire held on the 15th August. Big scale Site. Note anything August. Small scale specific relating to the site that is of importance

People involved in Young people around 12 Mostly young people from different areas. arranging / building and 14 year olds; older the bonfire and who people / wider community attends involved years ago but not currently.

Materials that are Any materials (wood, n/a burnt furniture, wood, etc.) & English flag. “Anything we can get our hands on”.

Impact on Celebration only by young Bigger bonfire, anti-social behaviour community people to have fun, wider issues (drink, fights, etc.) and relations/any community not involved intimidating behaviour. incidences of but not objected to. The There was also felt to be a lot of tension anti-social young people felt that the with the Council as they ‘clear up’ in behaviour etc. wider community see no advance of the bonfire. harm in it. In recent years The perception is that it is not a older people turn up less community event and only young and less. people attend. There is also felt to be intimidation going on to ensure young people attend

Any examples of No Injuries, fights and anti-social behaviour. injuries, calls to emergency services etc. 142

Health and safety Council cleans up the site. Council cleans up the site. There is no considerations There is no insurance. insurance. including insurance, The Group was not aware The Group was not aware about who liability, marshalling about who is responsible is responsible if anything went wrong, etc. if anything went wrong, “probably the Council”. “probably the Council”.

Alternatives Not in place and not None suggested considered as participants felt their bonfire was on a small scale and as it ‘didn’t bother’ anyone they didn’t feel there needed to be an alternative. Their perception was however that the Moss Park bonfire had a lot of fighting and was more intimidating.

Action Plan The group had not considered the implications of running a bonfire without insurance and as with many other bonfires there is an assumption that the Council is responsible. The problems are particularly clear in Moss Park as there is anti-social behaviour and fights amongst young people. It is essential the local community decide whether they want the bonfires or not and then take appropriate action. The actions here are very similar to those set out for Irish Street and Top of the Hill. It is essential to identify a number of local people who wish to be part of any solution to the current bonfire problem and who could form bonfire groups in each area (community leaders). These groups need to involve the young people as well as those from all other parts of the community. The focus should be on either seeking to shut down the bonfire or make it manageable / safer. The community need to educate local young people on the risks with bonfires (as with the Clooney site) and involve them in developing a solution – either operating a safe, environmentally friendly bonfire or closing it down. The strategy to be followed should be devised by the community. The actions needed to be implemented depend on the response from the community. Community leaders may need support and advice from statutory bodies to devise and implement the strategy. 143

6.3 6.3.1 Background Omagh Area There are approximately 8 bonfires in the Omagh area:

Bonfire Site Land Owner Details of Location Ward

Playing fields at rear of Hospital Road Omagh District Council Hospital Rd Community Camowen Centre

Strathroy Omagh District Council Within Strathroy estate Lisanelly

NIHE land for collection Lisanelly – bonfire burnt on ODC Front of estate Lisanelly ground

Playing fields backing Fintona (Denamona on to Omagh road near Omagh District Council Fintona Court) entrance to Denamona School

Fintona (Ashfield Omagh District Council Near all-weather pitch Fintona Gardens) Mullaghmore Omagh District Council Playing fields Killyclogher Opposite Railway Court, CKS / O’Kane Park NIHE Coolnagard adjacent to play park

Shandon Park NIHE Back of estate Gortrush

The Steering Group identified 4 bonfire groups for 1:1 consultation in the area: • Hospital Road; • Strathroy ; • Fintona (Denamona Court and Ashfield Gardens); and • Mullaghmore.

6.3.2 Omagh District Council Position

Overview In the Omagh District Council area there is one bonfire on the 11th July and usually seven bonfires on Halloween night. This is a significant reduction in comparison to years ago when the numbers on many occasions reached 14 on Halloween night. The Council has no formal Bonfire Policy but has developed a bonfire management process as described below. 144

Current Position Following a report to Council in 2007 the Arson Sub Group of the Community Safety Partnership (CSP) was tasked to address issues of anti-social behaviour and environmental issues associated with bonfires and Halloween in general. The composition of the group is multi-agency, encompassing voluntary and community groups, as well as statutory bodies including the PSNI; Northern Ireland Fire and Rescue Service (NIFRS); Environmental Health, Technical Services and Development Department’s within the Council; Community Safety Partnership representatives; District Policing Partnership representatives; Northern Ireland Housing Executive and Councillors. The remit of the group is to work with communities to assist them in moving away from bonfires as an integral part of their celebrations by providing funding to local groups for diversionary activities through a small grants application process. £13,000 was made available this year; 20 applications were made and 20 groups were funded. As part of the application process the community groups are provided with a safety briefing from the NIFRS and Environmental Health on safety aspects of Halloween activities. Information is also shared in relation to the sale of fireworks, accidents associated with fireworks, hotspot areas for misuse of fireworks, information disseminated to local tyre depots in relation to legal obligations and provision / progress of education in schools around Halloween Safety by the PSNI educational outreach Officer, is all addressed within the group. This allows the group to target hotspots and ensure relevant information is disseminated where it is most needed. Complimentary activities in addition to that supplied by the group are also provided by Council i.e. Major annual fireworks display. In fulfilling its remit the group meets quarterly throughout the year; and weekly eight to ten weeks before Halloween to share information. Problem areas are identified and relevant people are informed. In fulfilling its duty to protect Council property and ensuring Public Safety, any materials found to be on Council property is removed by the Technical Service Department staff when they are reported right up until Halloween night. There has been significant damage caused to playing fields and/or adjoining play areas by bonfires in recent years. However, the Council note that year on year there is a continued increase in the number of applications received by the CSP for diversionary activities. This complements the fact that the number of bonfire sites within the District is continuously decreasing. Issues of Concern Where possible the Arson sub group will work with partners and agencies to ensure that bonfires are removed from public land. However, certain difficulties do occasionally emerge, including opposition from 145

some members of the community when removing materials. The removal of tyres and materials is also problematic in that there is currently no funding available to dispose of the tyres or materials, thus this cost is consequently attributed to other budgets. Other cost implications include the clean-up operations after the bonfires have occurred, including staff costs and equipment diverted from normal duties. Conclusion Omagh District Council notes that it is ultimately up to the community in directing the future in relation to provision of bonfires but will continue to provide diversionary funding for other activities and encourage safe celebrations on the 11th July and on Halloween night. It is noted that the Fintona area did not have any bonfires on Halloween 2010 and that bonfires were held at Strathroy, Mullaghmore, Shandon Park and O’Kane Park. The Council is currently in the process of developing a Bonfire Policy.

6.3.3 Survey Feedback

A total of 60 respondents from the Omagh area completed the survey, ranging across all age groups and socioeconomic status, and both Protestant and Catholic community backgrounds. Their responses are an example of the different perspectives and opinions on bonfires and their impact on the local communities within the area. In order to provide some background, contextual information to the action plans that have been developed, the following paragraphs summarise the key findings of the survey for the Omagh area: • Impacts of bonfires in local area – bonfires were seen as a social gathering by 60% of Omagh respondents, followed by fun day and celebration of culture (30% each). However over a quarter highlighted they were a cause of air pollution and anti-social behaviour (27% each). • Impacts of bonfires on relations between communities – bonfires have a negative impact on the relations between Protestant and Catholic communities in the bonfire local areas (53% of respondents). • Community relations between communities – from the results, there is no difference in community relations between Protestants and Catholics to two years ago (57%), and no difference is expected in two years time (55%). 35% of respondents however believe that relations are better now in comparison to two years ago and 27% that relations will be better in two years time. • Concerns within local community – respondents were aware of some people in their local community that are concerned about having bonfires (56%). • Responsibility and public liability – the respondents felt that the Local Council is responsible for cleaning up the bonfire (50%), but 146

highlighted that people who organise the bonfire should be required to clean it up (60%), as well as covering the cost of cleaning up (47%), the insurance (48%), and they would be responsible if someone gets injured (37%). • Suggestions for improvement – whilst the survey did not highlight a lot of negativity about the bonfires, the survey results also show that some action is needed regarding the management of bonfires. The respondents said they would like the authorities to establish a cultural fun day (53%) to divert interest from the unofficial bonfires, followed by better management of the bonfire sites (33%), and less anti-social behaviour (30%). • Relations between communities – ‘cross-cultural meetings, events and partnerships’ were suggested by respondents as ideas as to how community relations in their area could be improved (33%). This was followed by ‘young people involvement and support’ and ‘organisation of more events, activities, workshops, educational programme’. 42% of those who suggested ideas for improvement said the bonfire cannot help in this regard, followed by cross-community events or alternatives to bonfires (16% each).

6.3.4 Omagh Wide Consultation

6.3.4.1 Strule Arts Centre: 30th September, 7.30pm As part of Omagh District Council’s multi-agency planning approach an event was organised by the Community Safety Manager for community groups applying for funding (provided through Omagh Community Safety Partnership) for Halloween diversionary events. The event included presentations from: • Northern Ireland Fire & Rescue Service on firework and bonfire safety; • Environmental Health Officer, Omagh District Council on event safety; • Community Safety Officer, Omagh District Council on funding application procedures and guidelines. The event was attended by circa 20 representatives from community groups throughout the Omagh District. The group were consulted with by FGS McClure Watters on their views on bonfires in their respective areas. The group spoke about Halloween bonfires in their areas, they were asked about: • General community feeling / attitude to bonfires; » Organisation of the bonfires (collecting, building, supervision, insurance etc.); » Types of materials burnt; » Location of bonfire; » Attendance levels at bonfires; » Levels of antisocial behaviour at bonfire; 147

» Bonfire alternatives that have been considered / implemented; » Suggested actions to be included in Action Plan. Two group members spoke about their communities’ bonfire as positive events. Neither of the communities had insurance for their bonfires – although this was something they were interested to know more about following the Environmental Health Officers talk (which included information on the insurance requirements for bonfires). A group member from one area stated that their bonfire has been held annually for at least the last 12 years and he felt it was an important event for the young people as there were no community objections and the young people take responsibility for collecting materials for it. The bonfire is well attended by all age groups in the community and it has been incident-free. The community group committee ensure that the site is cleaned-up following the bonfire. Another group member spoke about the Halloween bonfire in his area that has been held for “as long as [he] can remember” – he also felt it was an important event for the young people and is held on the same site each year which is owned by NIHE. The event is overseen by adults from the Resident’s Association. They consult with the young people each year on their intentions for the bonfire to ensure adequate precautions are taken in terms of size, construction etc. The adults also supervise the bonfire on the night. The group member reported that the young people collect the materials – mostly consisting of pallets. They had previously collected tyres which the local tyre supplier would give to them, but this doesn’t happen anymore due to the legislative requirement for suppliers to account for their tyres. Again, the bonfire is attended by all age groups and there are no strong community objections as it does not attract any antisocial behaviour. The housing executive is involved in cleaning up the site afterwards. This group member voiced concern that the ODC funding could be seen as a “bribe” for stopping bonfires – which he would not like to see happen as it is a “cultural event”. It was clarified by the CSP Manager that the overall intention of the diversionary funds is to reduce anti-social behaviour in the district and that this funding was not always directed towards bonfire areas. Another group member spoke about alternatives to bonfires that have been implemented in their area. The bonfire that had been previously held attracted antisocial behaviour and the community were not happy with it. The bonfire had been held on a playground (which was NIHE owned) and the council would have to clean up the area afterwards. The adults in the community consulted with the young people and it was agreed that a new multi sports pitch would be built on the bonfire site. This was funded through Omagh District Council, PSNI, NIHE and Omagh Community Safety Partnership. The group member felt it made sense for agencies to swap the “clean-up” money for investment in facilities for 148

the young people. In addition, the community hold a Halloween fun day as an alternative to the bonfire on the actual day. The group were asked what additional activities or events could be incorporated into the existing ODC funded fireworks event at Omagh Leisure Complex. There was general appreciation for this event with rural groups in particular stating that they organised buses to get their young people to it. There was a consensus that the event was especially attractive for young families and the following suggestions were made to strengthen this event: • Possibility of more town centre fireworks with a particular interest being expressed in fireworks being let off from near the river • Street theatre throughout the town centre would be welcomed and there was an interest in providing more of a showcase for the adults who enter the various fancy dress competitions in licensed premises. The group were asked what they believe should be included in a Bonfire Action Plan. The following suggestions were put forward: » A few members of the group felt that instructions on how to physically build a safe bonfire in terms of levelness of ground, height etc. should be included, implementing a height restriction of some description. » More co-ordinated approach between NIHE and ODC and shared policy to support each other in managing bonfires; » Management of bonfires to be sensitive to people / community cultures and beliefs. General points One group member voiced concern that the Omagh Community Safety Partnership funding is an example of money being given to children who have been involved in antisocial behaviour at the expense of children who have not i.e. rewarding their bad behaviour. The Community Safety Manager stated that the CSP has a main remit of reducing antisocial behaviour and their diversionary activities had to be addressed towards these issues rather than mainstream youth activities. 6.3.4.2 Young Adult Leadership Programme group, 13th October The group was arranged through a FOCUS representative and held in Community House, Omagh. Attendees: 23 young people (3 male, 20 female) aged 14-17 (plus the Young Adult Leadership Programme Coordinator). Many of the group did not actively participate in the discussion despite encouragement from the facilitator. The female members of the group were generally more vocal. The group were from different locations in Omagh and the surrounding rural areas, including Fintona. They also attended different schools. The group spoke about their views on bonfires that were held at Halloween in their respective areas. A number of the group (all male) reported being involved in the organisation of the bonfire in their area. 149

The female group members who contributed, were not involved in the organisation of the bonfire but spoke about the wider issues e.g. who attended the bonfire, events surrounding the bonfire etc. The group reported that bonfires are collected for and built by the young people in the areas (the majority of whom would be male) – adults in the community are aware that it happens. They typically burn collected wood and pallets. Two boys reported that they also burn tyres when they can find them – they reported that these are taken from farmers’ fields. They also report that there is no adult involvement in the collection and construction stages; if the young people had not taken responsibility for this the bonfires would not go ahead as no one else would be willing to do it. Female group members reported that a bonfire was held on a site next to a play park (which is council owned) in their area. They do not believe the bonfire causes significant damage – just a singed patch on the ground. Those from another area (Fintona) reported that their bonfire is held in a field that is close to the main road (the fire brigade were called to extinguish this bonfire one year when smoke from the bonfire was obscuring visibility on the road). The group understood that this happened because the bonfire was built too close to the road. Group members report that there are no strong community objections to the bonfires as they do not attract any antisocial behaviour (referring to e.g. underage drinking, fighting etc). Different members of the community attend the bonfires – e.g. adults, parents with younger children – but will usually leave relatively early in the evening. The group did not know of anyone being burnt or injured at bonfires in their respective areas. Group members stated that the young people involved in the organisation of the bonfire do not clean up the site the following day – however, they also report that the bonfires do not create a substantial mess and so do not feel that this is an issue. When asked if they would attend an alternative event, such as a bonfire organised in conjunction with the fireworks display in Omagh centre, the group members involved in organising bonfires stated that they would prefer to build their own. If other events were organised they would still have their own bonfire. 150

6.3.5 Profile of Bonfire Sites in Omagh Area

This section now presents the profile information and the consultation feedback on each of the selected bonfire sites in the Omagh area. Action plans have been drawn up relating to each bonfire site based on focus groups, consultations and survey results for that area. The consultation findings for each area are reflective of the discussions held during focus groups in the area.

Hospital Road (11th July)

Profile

Date 11th July Hospital Road – Playing fields at rear of Hospital Road Community Bonfire location centre Land Owner Omagh District Council

Ward Camowen

Population (No.) 2,377 Neighbouring Drumnakilly, Killyclogher, Lisanelly, Drumragh ward(s) Community background (%) 49.0 Catholic / 48.5 Protestant and Other Christian in the Ward

No. of surveys 29 returned

Sources: NINIS / Omagh District Council 151

Views of Focus Group Respondents A focus group was conducted with the Hospital Road Community Centre Committee members, including 1 male (50s) and 5 females (between 20 and 50 years old).

Date of bonfire & One bonfire is held annually on 11th July. It is held on the same site each Site. Note anything year, which is council owned. specific relating to the site that is of importance

People involved in The local band used to be involved in organising this bonfire but in arranging/ building recent years the band have gone to Scotland. The bonfire was not held the bonfire and who for a few years but is now organised by local teenage boys (aged 12-16). attends It is not well attended – only by the teenage boys – and only a small number attended it this year.

Materials that are They typically burn collected wood and pallets. There have occasionally burnt been tyres and dumped materials (e.g. sofa) amongst the collection, but this happens less frequently now, particularly since the local tyre companies now have to account for all misplaced tyres. Community representatives check the collected materials and calls the Council’s Technical Services if they see anything that needs removed.

Impact on There are no strong community objections to the bonfire as it does not community attract any antisocial behaviour. There are no sectarian issues with the relations/any bonfire and the group reported that there are no community relations incidences of problems in the area. In previous years when the bonfire was organised anti-social by the local band there was better attendance by the local community behaviour etc. and was more of an event. This tailed off as the band are now away on the 11th in Scotland for marches. The band used to clean up the area following the bonfire.

Any examples of No examples given. injuries, calls to emergency services etc.

Health and safety There is no insurance for the bonfire. considerations There is little mess created and the children typically clean up the next including insurance, day. In the past, three or four adults would have supervised the bonfire, liability, marshalling e.g. made sure the children didn’t get too close. This doesn’t happen etc. anymore as the bonfire is so small. 152

Alternatives The group spoke about an event they held two years ago on the 11th July. As part of Omagh Fest, the community got funding from the Council (and additional funding from the Orange Lodge) to organise a community event around the bonfire. They had a much larger bonfire (organised by the community) and fireworks. This event was well attended by all age groups in the community. The event was well marshalled – ensuring that people stayed well back from bonfire/ fireworks, checking bags on the way in for alcohol etc. The event was very positively received by the local community.

Action Plan More funding to provide alternative events. suggestions

Action Plan There is no proper supervision or management at this event, posing risks to some young people at the event. Omagh District Council also needs to develop a Bonfires Policy which may impact on this bonfire as it is held on Omagh District Council property. The Council and the members of the Community Association should also consider greater levels of communication to ensure that the bonfire site is kept clear of materials. The community needs to consider what it wants to see happen to the bonfire and then work with the Council to make this happen. The options are to close it down on the basis of health & safety reasons or have the adult community represented and involved in managing it, getting insurance, ensuring it is run safely and with no impact to the environment. The community then need to communicate with local young people their plans and the reasons for these. The survey results for Omagh suggest a number of people wish to see more events / festivals promoted. If this is the case at Hospital Road then strong local community support is required to lead on this. Several references are made to the local band receiving CSP funding for the last two years during the Halloween period and this should be built upon and extended to deal with the 11th July period. As part of the CSP funding the young band members have received information sessions on drugs and alcohol and anti-social behaviour and this is also to be welcomed. Community members indicate that a larger Orange Fest type event could be applied for every 7 years when the 12th of July is held in Omagh but this would obviously create lengthy gaps in provision. The Hospital Road Community Centre has been recently reopened and offers new sports facilities and could assist with providing diversionary activities. 153

Strathroy (Halloween)

Profile

Date Halloween

Bonfire location Within Strathroy Estate

Land Owner Omagh District Council

Ward Lisanelly

Population (No.) 2,973 Neighbouring Camowen, Strule, Killycogher, Drumragh, Dergmoney, Gortin ward(s) Community background (%) 58.6% Catholic / 34.9% Protestant and Other Christian in the Ward

No. of surveys 9 returned

Sources: NINIS / Omagh District Council

Views of Focus Group Respondents The focus group consisted of a development worker and three youth leaders (2 females, 20s and 40s, and 1 male 30s) based in the Strathroy Community Centre. The Development Worker had also spoken about the issue at the committee meeting the previous night (attended by circa 10 adult residents) and provided feedback on the issues they raised. An additional focus group was held with 8 children – all male, aged 12 to 17. 154

Date of bonfire & There is one bonfire at Halloween. This is held on a piece of gravelled Site. Note anything land that belongs to the council. They previously had a bonfire in specific relating to August also, but this was stopped about 10 years ago as it attracted the site that is of incidents of antisocial behaviour – such as noise and under-age importance drinking.

People involved in It is organised by the young people (mostly male) in the area, aged from arranging / building 8 to 17. The bonfire is attended by all age groups within the community the bonfire and who – adults, parents with young children and older people. This is usually attends for a short period of time and most people tend to leave by 8-9pm, the younger people will stay until the bonfire has burnt out which is usually about 11pm.

Materials that are The children / young people collect materials for approximately three burnt weeks prior to the bonfire. They use pallets; scrap wood and old furniture donated by local people. The children consulted through the focus group report that they also collect tyres for the bonfire (they take these from farm yards). They state that they like to use tyres because they burn well and keep the bonfire lit for longer. They do not feel that the local community object to them burning tyres because the bonfire site is far enough from the surrounding houses.

Impact on No reported incidences of anti-social behavior. The only concern from community relations the community is that the children will often collect large items (such as / any incidences discarded mattresses or sofas) and drop these on the street as they are of anti-social unable to carry them to the bonfire site. When this happens, someone behaviour etc. from the community will call the council to pick it up.

Any examples of No examples given. injuries, calls to emergency services etc.

Health and safety Adults from the local community ‘keep an eye’ on the materials being considerations collected and the construction of the bonfire to ensure that it will be including insurance, safe. They have told the children that they will be permitted to hold the liability, marshalling annual bonfire as long as it is managed well and safe. etc. The Community Centre committee have considered taking over management of the bonfire and making it more of a community event, but had been deterred by the insurance issues and the risk that they would be held responsible if someone was injured. 155

Alternatives A number of other events are organised by the Community Centre as part of the Halloween festivities – such as fancy dress and disco for the younger children. But the community do not have any strong objections to the bonfire and so have not tried to stop it. They feel that it is a community tradition to have a Halloween bonfire and the children enjoy collecting for and constructing it. There was widespread community objection to the August bonfire due to the antisocial behaviour, and so the adults worked with the young people at the time to explain that their behaviour was causing upset and damaging property etc. Following consultation with the young people, they moved a community festival usually held in July to the bonfire day in August as an alternative – which worked and the bonfire in August has not taken place since then.

Action Plan Community groups could manage bonfires in their area, ensuring that suggestions they are safe, well managed and cleaned up afterwards, however there is an issue over insurance, permission from the land owner, and funding these costs which the community have not actioned.

Action Plan The community in this area have already demonstrated their ability and commitment to managing situations which are having a negative impact on their area. It is therefore a situation which could be further developed. Omagh District Council also needs to develop a bonfires policy which may impact on this bonfire as it is held on Omagh District Council property. Whilst there is no evidence of antisocial behaviours happening in this case, there are risks from a health & safety and environmental perspective given that the young people are putting lots of different materials on the bonfire, as well as wood. Also given the lack of insurance and the community’s fear over being liable should anything happen, it may be that the community decide that there is no need for a bonfire. In this case, they will need to make this decision, inform/ communicate educate local young people as to why the bonfire needs to be closed down (health & safety, environmental and insurance issues) and then work with the Council as other communities to make this happen. In doing so other alternatives for the young people should be investigated in conjunction with the young people and options developed to divert activity from the bonfire sites. This area has received funding from Omagh CSP on several occasions and is also within a Neighbourhood Renewal area so these youth diversionary activities is could be built upon. 156

Fintona (Halloween)

Profile Denamona Court

Date Halloween Playing fields backing unto Omagh Road, near entrance to Denamona Bonfire location School Land Owner Omagh District Council

Ward Fintona

Population (No.) 2,130 Neighbouring Newtownsaville, Trillick, Clogher, Fivemiletown, Clanabogan ward(s) Community background (%) 72.9 Catholic / 26.2 Protestant and Other Christian in the Ward

No. of surveys 6 returned

Sources: NINIS / Omagh District Council

Profile Ashfield Gardens

Date Halloween

Bonfire location Near all-weather pitch

Land Owner Omagh District Council

Ward Fintona

Population (No.) 2,130 Neighbouring Newtownsaville, Trillick, Clogher, Fivemiletown, Clanabogan ward(s) Community background (%) 72.9 Catholic / 26.2 Protestant and Other Christian in the Ward

No. of surveys 3 returned

Sources: NINIS / Omagh District Council 157

Views of Focus Group Respondents Ten young people attended, four females and six males aged 14 to 17 years old. They are all members of Fintona Town Youth Committee (FTYC) which has been established by Omagh CSP, PSNI and WELB Youth Service in order to address the lack of youth activities in the Fintona area. Most of the young people were from the Ashfield Gardens area of Fintona and the WELB outreach worker attended the focus group.

Date of bonfire & In the past there were two Halloween bonfires in Fintona one in Ashfield Site. Note anything Gardens and one in Denamona Court. For the past three or four years specific relating to only the Denamona Court bonfire has been held, this site is a field close the site that is of to a main road. The young people did not know who owned the land. importance.

People involved in The bonfire is organised by local teenage boys and girls, it is mostly the arranging/ building boys that build the bonfire. The bonfire is attended by young people the bonfire and who from across Fintona. attends

Materials that are They typically burn collected wood and pallets. They also like to burn burnt tyres when they can find them – these are reportedly taken from farmyards, the tyres help the bonfire stay lit for longer. It is usually very big.

Impact on The bonfire does not attract any anti-social behaviour most people community just stand around and watch. Earlier in the evening families with young relations/any children would watch and then later on older teenagers would be there incidences of drinking but they did not believe that there was any trouble associated anti-social with the bonfire. behaviour etc.

Any examples of In Denamona Court one time the fire brigade came out because of the injuries, calls to smoke on the road. emergency services etc.

Health and safety The fire brigade were called to extinguish the bonfire one year when considerations smoke from the bonfire was obscuring visibility on the road. Some of including insurance, the young people felt that this was an overreaction and that it was not liability, marshalling that dangerous. The last time the Ashfield Gardens bonfire happened etc. the new sports pitch got burnt, however the young people felt that there was not that much damage caused. However, they did recognise that a large amount of funding was required to build the sports pitch. 158

Alternatives Other people have had Halloween parties but the group felt that these were just for very young children. There was a general feeling that the bonfire was doing no harm so why would they need an alternative.

Action Plan None. suggestions

Action Plan It is clear that the young people consulted do not fully appreciate the impact of the bonfire on the area, impact on the sports pitch, the degree of smoke, health & safety and/ or the risks of burning tyres. There was no evidence of adult supervision at the bonfire, although those consulted with noted that it is well attended. There are risks associated with this bonfire: health & safety, environmental and potentially anti- social behaviour. The community need to decide what they want to happen with the bonfire. This should cover the views of young and older people in the area. These views should then be used to make a decision on the best way forward – either close the bonfire or manage it in a safe way. If the latter, the community will need to come together to: • Educate the young people of the need to change; • Review the position of the bonfire (i.e. next to main road); and • Safeguard the football pitch. Alternatively the community could decide to close the bonfire and encourage those who wish to go to a bonfire to participate in other diversionary activities. In this situation the community could work with the council to help make that happen. As with examples of where this approach has been taken, community leadership is key. The young people consulted with are hoping to open a drop-in centre in the near future and hope to act as a forum addressing issues for young people in the area. This would provide an ideal group to consult with regarding changes to the existing bonfire. Omagh District Council also needs to develop a bonfires policy which may impact on these bonfires as they are held on Omagh District Council property. The young people were consulted with before Halloween and there were no bonfires held in Fintona this Halloween. A youth diversionary event, funded by Omagh CSP, which the FTYC assisted at, was delivered successfully. 159

Mullaghmore (Halloween)

Profile

Date Halloween

Bonfire location Playing fields

Land Owner Omagh District Council

Ward Killyclogher

Population (No.) 2,945 Neighbouring Camowen, Drumnakilly, Lisanelly, Gortin. ward(s) Community background (%) 91.5 Catholic /7.3 Protestant and Other Christian in the Ward

No. of surveys 3 returned

Sources: NINIS / Omagh District Council

Views of Consultee It was not possible to hold a focus group in Mullaghmore; therefore, a one-to-one telephone consultation was held with a member of the Mullaghmore & Castleview Community Association and resident in Mullaghmore.

Date of bonfire & There is one bonfire per annum on Halloween night. It is held on the Site. Note anything same site each year which is in a field owned by the Council. There are specific relating to houses in close vicinity to the bonfire, but not dangerously close. The the site that is of Council clean up the site following the bonfire. importance.

People involved in The bonfire is organised by a group of young people, aged 10-14 (these arranging / building are mostly male but a small number of females are involved) who the bonfire and who collect materials and construct the bonfire. This group are the only attends attendees at the bonfire. No adults supervise the construction of the bonfire or attend on the night. 160

Materials that are Materials typically include wood and old furniture – some local people burnt will dump unwanted furniture in the street around Halloween for the young people to collect instead of calling the Council to remove it. Tyres have not been burnt for at least two years as there is nowhere locally to access them.

Community The local community are opposed to the bonfire and would like to Support see it stopped. The opposition is mainly due to the risk of danger and the mess left behind. If the community see materials being amassed on the site in advance of Halloween, they call the Council to remove the materials. This has happened before when all the materials were removed a week before Halloween, but the young people re-collected more materials and the bonfire went ahead.

Impact on There is underage drinking and some disruptive noise associated with community the bonfire (however, the same level of drinking and noise frequently relations/any occurs on a normal weekend night). incidences of anti-social behaviour etc.

Any examples of There were no reported incidents of personal injury caused to injuries, calls to individuals. This year (2010), someone threw a petrol bomb at the unlit emergency services bonfire from a passing car on Halloween during the day. No one was etc. close to the bonfire at the time and so there were no injuries, but this was obviously a very dangerous occurrence.

Health and safety There is no adult involvement with the bonfire – at construction stage or considerations in attendance on the night. including insurance, liability, marshalling etc.

Alternatives The Community have attempted to work with the young people to stop the bonfires by explaining the risks and dangers involved, but this has not worked. The Community Association organise a Halloween disco for the local children. This has been held for the last four years and is well attended by a range of age groups from 4-14. However, the group who are involved in the bonfire do not attend and are unlikely to do so.

Action Plan Continue to uplift bonfire materials if they are amassed on bonfire site suggestions in advance. 161

Action Plan This bonfire is mainly run by local youths and there is a potential health and safety risk regarding how it is controlled and managed. Local community representatives should investigate if there are a sufficient number of local people willing to set up a group to work with them to make this happen over the next year. The Group would be responsible for advising the Council on the community’s needs, the best process for dealing with the bonfire and any supports needed to make this happen. The local community should also consider having closer communication with the Council to inform them when there are materials to be collected. There is evidence from other areas (e.g. Bogside) that this approach works. If there are no representatives from the community willing to take on this role, then this bonfire will most likely be left to continue as it is. It is unlikely to have a major impact on the community, except that there are health & safety risks to young people attending or supporting it.

6.4 In 2009, there were a total of 11 bonfire sites within the Strabane District Strabane Area Council area (4 in July and 7 in Halloween):

Bonfire Site Land Owner Details of Location Former Walls Site, Department of Social Parkview Road, Castlederg Castlederg Development Glebe Playing Strabane District Council Bellspark Road, Sion Mills, Strabane Facilities Carlton Drive, Private Landowner Lismourne Place, Strabane Strabane Fountain Street, NIHE Drumrallagh Estate, Strabane Strabane Allen Park, Private Landowner Allen Park, Donemana, Strabane Donemana Artigarvan Private Landowner Behind Millbrook Park, Artigarvan

Clady Private Landowner Beside No 2 Scotstown Road, Clady

Ballycolman Private Landowner Adria Site, Beechmount Ave, Strabane

Sion Mills Strabane District Council Mourneside Walk, Sion Mills

Camus Strabane District Council Camus, Strabane

Newtownstewart Private Landowner Behind Orr Park and Castleview, NTS 162

In 2008, Strabane District Council set up a community / statutory forum to look at the issues of bonfires. During Halloween of 2010, there was a reduction from seven bonfires in the District down to two. Both these events took place in Strabane town. The introduction of a public fireworks display and festival seems to have drawn more people into this activity and away from the traditional bonfire approach. There was a stark difference between both bonfires, one having no reported incidents of anti-social behaviour (Fountain Street) while the other had a very bad press (Ballycolman). In 2010, the Council spent around £1,200 cleaning up the bonfire sites. In addition, NIHE spent £400 in 2009 and £400 in 2010 in costs related to bonfires in Strabane.

6.4.1 Survey Feedback

A total of 33 respondents from the Strabane area completed the survey, ranging across all age groups and socioeconomic status, and both Protestant and Catholic community backgrounds. Their responses are an example of the different perspectives and opinions on bonfires and their impact on the local communities within the area. The key findings of the survey are as follows: • Impacts of bonfires in local area – anti-social behaviour was perceived to be the main impact of bonfires in local areas highlighted by (48% or respondents),followed by social gathering, substance abuse and air pollution (36% each), and pressure on emergency services and illegal dumping of waste materials (30% each). • Impacts of bonfires on relations between communities – 42% of respondents felt that bonfires have no impact on the relations between Protestant and Catholic communities in the bonfire areas, but 36% of respondents indicated bonfires have a negative impact. 163

• Community relations between communities – from the results, the majority of survey respondents felt there is no difference in community relations between Protestants and Catholics to that which existed two years ago (48%), and no difference is expected in two years time (39%). 24% of respondents believe relations are better and 30% believe that they will be better. • Concerns within local community – 54% of respondents were aware of some people in their local community that are concerned about having bonfires. • Responsibility and public liability – 36% of the respondents indicated the Local Council is responsible for cleaning up the bonfire, but highlighted that people who organise the bonfire should be required to clean up (48%), as well as cover the cost of cleaning up (48%), the insurance (45%), and responsible if someone gets injured (45%). The balance felt the responsibility existed with participants themselves and the Local Council. • Suggestions for improvement – it is clear from the survey results that some action is needed regarding the management of bonfires. The respondents said they would like to see less anti-social behaviour (37%), followed by better managed bonfire site (33%), and less alcohol consumption and establish a cultural fun day (30% each). Conversely, the music/ party ending earlier and fewer flags on display (4% each) were the options least suggested. • Relations between communities – a third of respondents felt that ‘cross-cultural meetings, events and partnerships’ were needed to improve community relations in their area. This was followed by other options, such as ‘organisation of more events, activities, workshops, educational programme’, ‘integrated education’ and ‘more communication’. 164

6.4.2 Profile of Bonfire Sites in Strabane Area

This section now presents the profile information and the consultation feedback on each of the selected bonfire sites in the Strabane area. Action plans have been drawn up relating to each bonfire site based on focus groups, consultations and survey results for that area. The consultation findings for each area are reflective of the discussions held during focus groups in the area.

Ballycolman, Strabane

Profile Date Halloween

Bonfire location Adria Site, Beechmount Ave, Strabane

Land Owner Private Landowner

Ward Ballycolman

Population (No.) 2,423 Neighbouring East, West and South. ward(s) Community background (%) 97.5 Catholic / 2.1 Protestant and Other Christian in the Ward

No. of surveys 0 returned

Sources: NINIS / Strabane District Council

Views of Consultees It was not possible to arrange a focus group in this area, but a representative from Ballycolman / Linkside Community Development Association provided details about the bonfire (telephone consultation on 29th October 2010). The bonfire is organised by young people in the area. 165

Date of bonfire Halloween (Sunday night). It used to be located in Council land but & Site currently there is no land left and it is lit in accessible private land.

People involved in Young people only. Materials to be burnt are collected from August by arranging / building the youngest (around 10 years old) and built by the older young people the bonfire and who (around 15 years old). A lot of young people attend the bonfire. attends

Materials that are Wood, tyres and other material. The storage of the material is burnt problematic. There were reports of materials being stored in vacant private houses. NIHE removes material that is not allowed to be burnt.

Impact on The bonfire is held in a Catholic/ Nationalist area; therefore it has no community impact on the relationship between the two communities. relations /any Not aware of incidents, it is like a ‘normal’ Saturday and taken by young incidences of people as a party and opportunity to gather and drink. anti-social behaviour etc.

Any examples of No examples given. injuries, calls to emergency services etc.

Health and safety Private land owner, but not aware of them. considerations The Council cleans up the bonfire site after the bonfire is lit, which is including not especially problematic. insurance, liability, marshalling etc.

Alternatives Strabane Festival Committee organises a Halloween festival (Sunday 31st October 2010 from 5pm onwards) with street entertainment, fancy dress parades and fireworks. Young people take part in the festival and also in the bonfire.

Action Plan The Council should work with young people for a better managed suggestions bonfire, not against them as they would take a stronger position to defend the bonfire. This could include: • Information about materials to be burnt e.g. encourage them not to use tyres; • No drink until the youngest leave. 166

In addition, a young male (15 years old) from Ballycolman estate was consulted with (on 29th October 2010), contact details were provided by a Youth Diversion Officer. He said that the bonfire is located in an abandoned piece of land, with no houses nearby. The bonfire is lit at 9pm and is attended mostly by young people, but adults also attend (parents with younger children attend but only for 1/2 hour), and young people until around three o’clock in the morning. There is no fighting and only the older teenagers (around 18 years old) drink. The community does not object to the bonfire and have not attempted to stop it. Regarding materials used to build the bonfire, mostly pallets and wood that they get from local builders. No tyres are burnt. They store materials elsewhere and assemble on the site the date before. Council have not tried to stop them. NIFRS have not been called out to any incidents, and apparently they said that the site is safe. After the bonfire night, there is no mess left behind, just ash and indicated not being aware of who cleans up. Nobody has offered any alternative to the bonfire, but if they would it would not work as they want the bonfire. When reviewing the information above, Strabane District Council noted that there are quite a few objections in the community to the bonfire, particularly to the black smoke from the burning of tyres and the drinking. It was also indicated that the Council do not clean up the site afterwards. Both Council Officers and NIFRS staff noted that they had concerns about the safety of young people regarding the gathering and storing of bonfire materials. Furthermore, local businesses have been broken into and pallets stolen. Action Plan It is clear that the views of the young people differ from that of the Council and those living in the neighbourhood. It is not clear what the local level of support for this bonfire is. Also the Council have noted a number of serious health & safety issues associated with the bonfire. There is a need to start this process by getting the more mature local people to come forward to take a leadership role in helping to reconcile this situation. If they can come together to show and inform young people of their concerns, then experience elsewhere has shown that there is a possibility of the situation being reconciled and some of the issues minimised / reduced. Young people need to be given a wider perspective on the impacts the bonfire is having on the local area at a community level and individual level. Local police and NIFRS have been giving talks in local schools about the dangers of bonfires, however, the incidents and concerns reported show a need to reinforce educational initiatives at a neighbourhood level. 167

There needs to be greater recognition of the risks by young people from the bonfire, given the burning of tyres, the lack of insurance and that there appears to be little or no management supervision of the site. It is up to the people in the area as well as the young people to decide whether there is to be a bonfire or not. If so, then proper management structures need to be put in place to ensure the risks are reduced, and the statutory bodies and community sector can support them. As noted specific action needs to be taken to ensure materials such as tyres are not put on the bonfire, public liability insurance is in place, drinking is discouraged and antisocial behaviour eliminated. The private landowner needs to be included in any decisions as should anything go wrong , he / she needs to be aware of the potential liabilities.

Fountain Street, Strabane

Profile

Bonfire location Drumrallagh Estate, Strabane

Land Owner NIHE

Ward East

Population (No.) 2,098 Neighbouring Victoria Bridge, North, West, Ballycolman, South. ward(s) Community background (%) 97.1 Catholic / 2.6 Protestant and Other Christian in the Ward

No. of surveys 19 returned

Sources: NINIS / Strabane District Council

Views of Focus Group Respondents A meeting was held in Fountain Street Community Development Association. The group was split into two groups: • a younger group of 4 individuals aged 14 (two male and two female), plus one young youth leader; and • an older group of 12 males aged 15 to 16. The younger group were easily distracted and difficult to keep focused on the topic of bonfires. The older group arrived into the community centre from the bonfire site as they were in the process of collecting materials for the bonfire. 168

The bonfire is located on an isolated field owned by the NIHE at the back of the housing estate, surrounded by farmers fields. The bonfire is reportedly attended by most of the local community. After a long discussion about who owned the land the groups decided that it must be council property.

Date of bonfire & The bonfire is held on disused / derelict land at the top of street away Site from houses at Halloween. The group believed that the council owned the land, but it actually belongs to the Housing Executive.

People involved in A group of around 12 teenage boys aged between 16 and 19 take charge arranging / building of the bonfire and start collecting material in August. Some younger the bonfire and who teenage boys and girls help with the collecting but the older ones attends build and light the bonfire. The bonfire is usually lit around 9pm and is attended by a range of people depending on the time. For example, people with young children would usually attend early when the bonfire is lit and then young adults would hang about the bonfire into the early hours of the morning.

Materials that are A range of materials are burnt on the bonfire, however, it mainly burnt consists of wooden pallets and tyres. They admitted that the tyres were stolen from farmers and taken from outside a local tyre dealer. The group were determined that tyres were an important part of the bonfire as they created black smoke and helped the bonfire to burn for longer. The group claimed that without the tyres the bonfire would only last a few hours.

Impact on The group claimed that there was no trouble associated with the community bonfire even though people would stand around drinking. relations/any incidences of anti-social behaviour etc.

Any examples of Non given. injuries, calls to emergency services etc.

Health and safety The young people had not considered any safety aspects associated considerations with the bonfire and noted that if someone was injured at the bonfire including insurance, it would be their own responsibility. Their concept of marshalling liability, marshalling the bonfire was to guard the materials to ensure that they were not etc. lit before 31st October. The group claimed that the site on which the bonfire is held is not cleared by the land owner and that the grass grows over the damaged ground each year. 169

Alternatives The young people in the estate were adamant that a Halloween bonfire is a cultural tradition that their community is entitled to and it should continue no matter what other events or facilitates are provided by statutory bodies such as the local council. They were also very clear that the bonfire is for their immediate area and those from neighbouring estates were not really welcome at their bonfire. Although they also stated that the bonfire helps bring the young people in their estate together.

Action Plan It is clear that this group of young people are determined to have their own bonfire and were not interested in alternatives. However, only a small number of young people were consulted with and therefore, it is not clear how representative these opinions are of the wider neighbourhood. It may be that the wider population in the area agree with the young people’s views and if this is the case then they need to work with the Council, the NIHE and other statutory bodies to ensure that the bonfire can be made safer and with less pollution. The local people should inform the Council and NIHE of any tyres left on the site as soon as they arrive so that they can be taken away. There is a need to engage directly with the local young people to identify what actions or modifications to their bonfire would be acceptable to them and would be adhered to. It is possible that support and advice could be provided by staff from the CSP and / or Good Relations Officers to local community leaders in doing this. On the other hand if the majority of the people in the local area wish to see the bonfire done away with, then they need to work with the Council and other statutory bodies to make this happen. There are examples of sites in Derry~Londonderry that have made this happen and the process involved clear leadership from the local residents to their young people – telling them that a bonfire was not acceptable for health, safety and environmental reasons; and working with the young people on other alternatives. In these circumstances, the residents must also work with the Council and NIHE to ensure that any materials collected for a bonfire are taken way. There would need to be a two way communication process built up between the community and the statutory bodies. The decision on which route to follow needs to be clearly indicated by the residents and they need to be willing to invest the time needed to deliver on that decision over the next year. Whichever action is taken the current situation is not sustainable as there are health, safety and environmental issues to be resolved. These cannot be resolved by the Council or other statutory bodies separately, it requires a wider community consensus to proceed on a way forward and then seek support from others as appropriate to help them make it happen. 170 171

7. Conclusions and Recommendations

7.1 Bonfires are part of the social and cultural life in the North West and Overview Northern Ireland; and each of the bonfires is celebrated in a different manner in terms of the participants involved, the level of organisation of Key Findings and management, the support from the community and the impacts that its existence have within the local community and the wider area. It is clear from the review that the vast majority of bonfires in the NW area are operating with risks to health & safety, are causing environmental damage, are operating without insurance and are contributing to community tension and antisocial behaviour. Bonfires are generally built by young males and few give any consideration to health and safety issues, with a general comment being made that it is the Council’s responsibility or the individual who comes to the bonfire responsibility. There are a number of legislative controls under Waste Management, Roads, Clean Air and Public Health legislation which apply directly to bonfires. In general, it is the landowner who has ultimate responsibility. There are also responsibilities in regard to those depositing the material to be burnt and lighting the fire. Also where trade waste material has been deposited the waste producer is also guilty of an offence under duty of care provisions, this would include tyre dealers who have not stored their tyres securely. 172

The benchmarking exercise provides examples of other Councils working to manage bonfires, improve health & safety, reduce the environmental impacts and reduce the negative impacts generally on the local communities. The initiatives include bonfire management programmes with clear standards set for how the bonfires must be managed and financial incentives to the groups that take part to ensure these standards are met. The review of practice elsewhere highlights that whilst a number of areas have achieved positive impacts, it is an ongoing issue and there are no quick fixes. All the statutory consultees that have been involved in managing bonfires (Community Relations Officers and Environmental Health Officers) stressed three main aspects of their experience: • Regardless of the programme or initiative, the key consideration is to have the community leading on the initiative. Where there is no leadership or insufficient leadership from the community to either properly manage the bonfire or close it down, the strategy will fail. Statutory bodies are powerless to achieve any meaningful impacts unless local people exist in sufficient numbers and with the necessary commitment and drive to deliver. • Authorities however still have an important role. They need to be proactive in highlighting the risks to the communities and encouraging them to take the lead. Councils (Community Relations departments and the Community Safety Partnerships are key) need to work in a multi-agency approach with other stakeholders (Environmental Health, DoE, Roads Service, NIFRS, PSNI, NIEA, Community Groups and Associations, Community and Youth leaders and the wider community) to help support change within these local communities. • There is no magic solution to managing bonfires and any initiative requires a long-term framework and continual update and monitoring of its progress. The results and impacts are small and slow, but are to be based on building on small steps. 173

Experience from elsewhere highlights the importance of: • Community buy-in to the Solution: Community engagement is crucial to the development of any meaningful solution. Bonfire committees which are representative of the community are used in many areas to ensure that all sectors of the local community including young people are represented. To be sustainable any actions that are contemplated must be led by local people. • Partnership Working: Partnering with the police services; fire service, local authorities, roads representatives etc. are key, but they are not enough. There is a need to partner with young people’s representatives, especially those potentially involved with the bonfires and the local communities, parents and guardians of the young people. • Setting Expectations: The review of practices elsewhere demonstrates that this is a process which takes time and it can only move at the pace the local communities and in particular those involved or close to the bonfires, want it to move at. People or authorities external to the residents cannot successfully determine the rate of change, but there are tools that have helped in supporting the change process, but that it is the local community that are the change agents. It is therefore important that unrealistic targets or outcomes are not set for the programme and instead that the focus and any measures of success are linked to developing the need for change within the local community. • Tools: There are a range of tools that can help local representatives / communities with the change process. The first relate to increasing awareness and understanding amongst young people of the risks associated with bonfires. A number of regions have instigated education and awareness programmes with local schools and local authorities support poster campaigns. Secondly, funding is provided to support family friendly bonfires without alcohol, which are marketed to all. • Sustainability: experience from elsewhere has shown that any initiatives to be implemented need to be sustainable in the long term. Whilst it is recognised that funding may be required to kick start a programme, programmes that require large amounts of funding over long periods of time are usually not sustainable and their failure may be damaging to communities in the long term. 174

7.2 Community Leadership: Community leadership is the cornerstone to Conclusions developing a successful outcome regarding bonfires in an area. Without the community drive and commitment bonfire initiatives are set to fail. and Communities should identify representatives who are willing and able to Recommendations provide that leadership. Any actions that are taken at a local level should be led by the community and driven at a local level or they will not be sustainable. Policy: A number of respondents noted that they are unclear as to their local Council’s intention regarding bonfires. Some had availed of previous opportunities to engage with their council on bonfire issues but others had not. As such many of those respondents who were keen to retain their bonfire feared that Council’s intention was to prevent their bonfire from happening; others who wished to find alternatives to bonfires needed clarification on what policy councils would or could adopt in relation to this. All three Councils need to be clear on what their policy is regarding bonfires. Each Council should develop a Bonfire Policy, based on the findings of this report for their respective area. The policy should be clear, with a set of actions points to address the social, environmental and health and safety issues associated with bonfires. The policy should also be sufficiently resourced to allow its implementation. Where councils have limited funds in the current funding climate they should also consider options around assisting groups with funding processes from other external funding bodies Multi-departmental Input: It is recognised that, in certain areas, a considerable amount of work is already underway between Community Relations (CR) staff and/or Community Safety Partnership (CSP), Environmental Health and community representatives; as such there is much good practice that can be shared across community groups by these staff. It is key that communities develop good working relationships with Council staff, in order to manage bonfire situations. Whilst Councils’ CR staff and CSP staff will be key to this engagement process a cross-departmental approach will be required to deal with all the issues associated with bonfires, such as environmental and health and safety issues. It is also likely that additional input from other statutory agencies, such as NIHE, NIEA and PSNI would also be required to address all issue associated with bonfires and to fully implement any bonfire policies. Bonfire Closures: Bonfires are operating without insurance and for those on Council sites, the Council has a responsibility to ensure these are safe. If local communities are not prepared to work with the Council to ensure they are appropriately managed and controlled, then in these situations the site should be closed. 175

On council sites, where communities are not providing leadership on bonfires and are unwilling to do so, the Council should takes steps to close the bonfire down based on health & safety and environmental reasons. In the case where the site is owned by someone other than the Council, the Council advise landowners of their obligations under law. Bonfire Management Schemes: Bonfire Management schemes are being used with some success in other areas. The feedback is that they are working best for those sites with strong local leadership. Some other sites are not yet involved. Councils who are using Bonfire Management Schemes are developing a number of best practice sites, so that they can use these to help encourage others to get involved. Councils wishing to support bonfires in specific areas under their policy should set up a Bonfire Management scheme. It should be available for those Communities that wish to lead and deliver on a well-managed / controlled bonfire. Financial support provided by the Councils should be conditional on delivery of key standards of operation for example: no wood collected before a certain time; bonfire situated on safe site; insurance to be taken out; no tyres on the bonfire; no emblems / flags on the bonfire and evidence of adult supervision on bonfire night. Evidence of Community Support for Bonfire: In some of the focus groups, there was insufficient representation to reach a firm conclusion as to whether the community supported a bonfire in their area or not. In these situations it is important that appropriate quantitative evidence is sought, which is representative across all age ranges. Where the level of support for a bonfire is not clear, it is important the community undertakes a community survey to define the actual views of the whole community. 176

Notes 177 178

A research report by FGS McClure Watters Consultants.

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