The Journal of No.2 CROSS BORDER STUDIES in

with information about the CENTRE FOR CROSS BORDER STUDIES (including 2006 annual report)

Spring 2007 - Year 8 £7/f10 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

THE JOURNAL OF CROSS BORDER STUDIES IN IRELAND

Cover photo of ‘Hands Across the Divide’ statue: courtesy of CAIN web service – University of

The Centre for Cross Border Studies receives financial support from the EU Programme for Peace and Reconciliation

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The Head of the Civil Service, Mr Nigel Hamilton, launches the 2006 ‘Journal of Cross Border Studies in Ireland’. From left to right: Mr Joe Hayes, former Southern Joint Secretary, North/South Ministerial Council(NSMC); Mr Hamilton; Ms Mary Bunting, Northern Joint Secretary, NSMC; Dr Chris Gibson, Chairman, Centre for Cross Border Studies; and Dr Iognáid Ó Muircheartaigh, Chairman, Universities Ireland and President, NUI Galway.

CONTENTS

A word from the Chairman 4 Chris Gibson

‘Hello Stranger’: the Revival of the Relationship between Ireland, 7 Northern Ireland and Scotland Cathal McCall

Joined-up Thinking across the Irish Border: Making the Data 22 more Compatible Rob Kitchin, Brendan Bartley, Justin Gleeson, Mick Cowman, Stewart Fotheringham and Chris Lloyd

North-South Agenda Setting in the 1960s and 1990s: Plus ca change? 34 Michael Kennedy and Eoin Magennis

Partnership in Cross-Border Development: Symbolic Structure and 54 Working Process Caitriona Mullan

Learning from the Irish Border: Reflections on Poland and the Ukraine 68 John Bradley

INFORMATION ABOUT THE CENTRE FOR CROSS BORDER STUDIES 82

Extracts from the Centre’s 2005-2006 Annual Report 111

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A Word from the Chairman – Chris Gibson OBE

February 2007 write Sinn Fein have agreed to support the Police Service of Northern Ireland. Northern Ireland elections are a month Two years ago the away, with the promise of power- , Bertie sharing devolved government returning Ahern TD, launched for the first time in four and a half the Centre’s 2005 years. Last October the Comprehensive yearbook in Dublin. Study on the All Island Economy, This second issue of commissioned by the two governments, The Journal of Cross pointed to ways in which the future Border Studies is prosperity of the island and the more being launched at efficient delivery of public services like Stormont by the Secretary of State for health and education could be Northern Ireland, Peter Hain MP. Such enhanced by a more integrated recognition by the political leaders of programme of North-South co- both Irish jurisdictions underlines the operation. In January the South’s unique position the Centre for Cross National Development Plan for the first Border Studies has come to occupy over time set aside very significant funding the past seven years as the place where for that co-operation. sensible people come together to research and develop practical co- In the middle of this the Centre for operation that can benefit the citizens Cross Border Studies goes from strength of both parts of the island. to strength. Now with a staff of seven (compared to two when it opened in The articles in this issue of the Journal September 1999), it continues to range widely: from relations between publish mould-breaking cross-border Ireland and Scotland to those between research in vital areas of public policy Poland and the Ukraine; through the like services to immigrant groups and continuity and contrasts which marked health services in the border region; to Irish cross-border co-operation in the organise North-South events for groups 1960s and 1990s; to the roles of as different as mental health specialists, partnership working and collecting spatial planners and chairs of public compatible data in practical cross-border bodies; to run all-island networks in co-operation today. higher and teacher education; to put on North-South training courses for This is a moment of great potential for interested public servants; and to set up cross-border relations in Ireland. As I innovative projects in crucial areas of 4 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

cross-border information provision. One core funding, this has been greatly head of a cross-border funding body strengthened. This funding – for salaries said recently that he found the amount and overheads – will allow the Centre to of work the Centre does with a small focus on its core mission: researching, staff “quite overwhelming.” developing and disseminating the benefits of practical cross-border co- And the Centre is not standing still. operation. Another key funder – again – Here are just four examples of its work has been the EU Peace Two 2006-2008 over the coming year. It has taken on a extension programme: all four of the contract from the North/South Centre’s funding applications to this Ministerial Council to use the expertise fund in the past 18 months were gained from the www.borderireland.info successful. Financial support has also online information system to set up a been forthcoming in the past year from mobility information website for people the Office of the First Minister and wishing to move across the Irish border Deputy First Minister, the Atlantic to work, study and live. It is developing Philanthropies, the EU INTERREG its work with the nine universities on programme, the Joseph Rowntree the island through a greatly expanded Charitable Trust, the Nuffield Foundation North-South Masters scholarship scheme and the British Council in Ireland. in collaboration with the IBEC-CBI Joint Business Council, and a proposal to Once again we are also grateful to the bring the Irish universities together in an various organisations which have imaginative initiative to help build the partnered the Centre over the past 12 research capacity of African universities. months: notably the North/South It will be running a cross-border schools Ministerial Council, InterTradeIreland, science conference with Armagh the Northern Ireland Departments of Observatory. And more generally it will Education and Employment and be taking concrete steps to implement Learning and the Irish Department for the recommendation in its most recent Education and Science, the Irish external evaluation, that it should Department of Foreign Affairs, the reinforce “its role as a critical space, Chartered Institute of Public Finance and independent voice and strategic Accountancy, Co-operation Ireland, the commentator on the state of North- Northern Ireland Housing Executive, the South relations and cross-border co- North-South Chairs Forum, FPM operation” – in the first instance Chartered Accountants, Armagh through a major annual conference. Observatory, the nine universities, the colleges of education, and the The financial position of any institutions which make up the organisation is fundamental to its International Centre for Local and existence. Due to last year’s decision by Regional Development. the Irish Department of Education and Science to provide significant recurrent 5 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

There are certain individuals, often Jenny Harris, the UK Young unsung, who also need to be thanked. Businesswoman of the Year, describes Thanks are due again above all to the her ‘theory of resonance’ as follows: Centre’s dedicated staff for another “Pebbles dropped into a pond can year’s fine work. Among others are our create bigger waves than a large brick. good friend John Driscoll, director of the The brick makes a decent splash but its International Centre for Local and ripples peter out quickly. A tiny pebble Regional Development (ICLRD); Philip dropped into the same pond, followed Watt and Fiona McGaughey of the by another, then another, then another, National Consultative Committee on all carefully timed, will create ripples Racism and Interculturalism (NCCRI); which build into small waves”. The Edel O’Doherty of Co-operation and Centre for Cross Border Studies seeks to Working Together; Ashley Bingham and be the pebble which creates waves of Roisin McAuley of Leslie Stannage co-operation and co-existence across the Design for their superb work in island of Ireland. designing and bringing to print all the Centre’s publications; Enda McCusker for his professional recording work at all our conferences; Michael Campbell and Ian Maginness for their high quality photographs; the always helpful Jean Watt of the Canal Court Hotel in Newry, and Sandra Atkinson for keeping our offices so spotless. All these friends and supporters have played their part in ensuring that the Centre for Cross Border Studies has such a bright future in these hopeful times.

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‘HELLO STRANGER’: THE REVIVAL OF THE RELATIONSHIP BETWEEN IRELAND, NORTHERN IRELAND AND SCOTLAND

Cathal McCall

The relationship between Ireland and Scotland is underwritten by geographical proximity, a history of migratory movements, and resulting social and cultural intimacy. Violent conflict in Ireland, embodied most recently in the Northern Ireland ‘Troubles’, has been a major factor responsible for the relationship becoming one of ‘intimate strangers’. However the contemporary Northern Irish peace process, devolution in the United Kingdom, and the prospect of an EU-funded Ireland- Northern Ireland-Scotland cross-border programme have reinvigorated the relationship and opened up the prospect of dynamic co-operation along this axis. Cross-border co-operation holds out the prospect of underpinning the East-West (Ireland and Scotland) and North-South (island of Ireland) space which can help efforts aimed at ameliorating the unionist-nationalist conflict and tackling . The highly successful visit of President Mary McAleese to Scotland in February 2007 served to underline this potential.

The case for developing the Irish- conflict ebbed, the Scottish National Scottish relationship through increased Party (SNP) leader Alex Salmond began political, cultural and economic cross- to draw parallels between Scotland and border co-operation can be made on Ireland, citing the Irish state as a prime the basis of the geographical, historical, example in support of the case for social and cultural intimacy shared by Scottish independence - a small state these two countries. A history of violent with international visibility, economic conflict in Ireland meant that this success and ‘self-respect’. While the intimacy was potentially troublesome quest for Scottish independence must and led to a degree of estrangement. be a long-term project for those Consequently the relationship became committed to it, developing the Ireland- characterised as one of ‘intimate Northern Ireland-Scotland relationship is strangers’. However as the violent a more viable short-term objective. The 7

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The Scottish Parliament in Edinburgh Irish peace process, UK devolution and Channel, including EU and state EU sponsored cross-border co-operation officials, politicians, academics, local have created a favourable climate for authorities, voluntary and community such an initiative. groups, enterprise agencies and business people. Ideas for co-operation spilled In 2006 the prospect of EU funding for forth from the inquiry, even if some cross-border co-operation between the unionist respondents from Northern three jurisdictions excited much debate Ireland preferred to ignore the Irish on both sides of the North Channel, a dimension and concentrate exclusively debate energised by the active on a Northern Ireland-Scotland endeavour of Scottish parliamentarians. relationship. However the committee’s A cross-party delegation from the report remained focussed on the fact Scottish Parliament was dispatched to that the EU cross-border funding in Ireland to consult with the Taoiseach, question necessitated an ‘Ireland’ , President Mary McAleese dimension. and Irish parliamentarians, as well as local authority, enterprise and The Ireland-Scotland relationship is, of community leaders in Donegal. Its remit course, one that has endured through a was to assess the potential for cross- history of inclement political weather. border co-operation along the Ireland- Large migrations of people back and Northern Ireland-Scotland axis. forth, including the Plantation of Ulster in the early 17th century and the Irish After conducting an inquiry into exodus to Scotland during 19th century possibilities for such co-operation, the famine times, have proven to be pivotal Scottish Parliament’s European and in shaping the character of both External Relations Committee produced countries. Important contemporary steps a detailed report. The inquiry elicited for reviving the relationship have already over 50 written responses from across a been taken in the higher education and wide range of interested individuals and arts sectors, with UK devolution organisations on both sides of the North bringing a political dynamism to that 8

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revival. Bertie Ahern has engaged Agreement provided for a North/South enthusiastically with Scottish ministers Ministerial Council (NSMC) together and Members of the Scottish Parliament with North/South implementation (MSPs) from the outset, and an bodies, as well as an East-West British- institutional platform for this Irish Council (BIC) and an international engagement, in the form of the British- British-Irish Intergovernmental Irish Council, was provided by the 1998 Conference. Agreement. The BIC includes representatives from This article begins with a brief resumé of the British and Irish governments, the some important contemporary cultural devolved institutions in Northern Ireland, and political aspects of Irish-Scottish co- Scotland and Wales, and representatives operation already in play. Thereafter it of the Isle of Man and the Channel addresses possibilities for the Islands (Jersey and Guernsey). Since development of Ireland-Northern 1998 it has had seven summit meetings Ireland-Scotland cross-border co- - in , Dublin, Jersey, New Lanark operation commensurate with a new EU (Scotland), St Fagans (Wales), Guernsey, funding opportunity. The cue for this and the Isle of Man. There have also examination is the debate that has been been ministerial-level sectoral meetings conducted under the auspices of the on drug misuse, the environment, Scottish Parliament. This article draws languages, the knowledge economy, on the submissions to the Parliament’s transport, and social inclusion4. The 2006 inquiry into possible co-operation central aim of the BIC is to promote the between Scotland and Ireland1; the sharing of ideas and practical co- subsequent report produced by its operation on these and other matters European and External Relations that are of mutual interest. For some Committee2, and the report by a cross- commentators, however, the BIC has party delegation which visited Ireland in proven to be little more than a talking October 2006.3 It ends with the shop, or worse, a junket for politicians, suggestion that the new space offered officials and policy experts5. by this particular form of East-West co- operation may also help to underpin Certainly the BIC that materialised failed North-South cross-border co-operation to live up to the expectations of its in Ireland. primary advocates, pro-Agreement Ulster Unionists. They had hoped that New political links the BIC would, in effect, neuter the NSMC by providing an institution for The Belfast Agreement provided a set of countervailing co-operation on the East- institutions that had implications for the West axis so as to strengthen the whole of the British Isles. In addition to economic, political and cultural ties the Northern Ireland Executive, between Northern Ireland and Scotland Assembly and Civic Forum, the and rest of the UK. However the 9 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

absence of East-West implementation in 1999 with the opening of an Irish bodies was a major factor in rendering Consulate in Edinburgh. Its raison d’être the BIC weak relative to the NSMC. was to develop Irish-Scottish links, Secondly, while the BIC can agree particularly through the nurturing of 'common policies and actions', contacts with Scottish ministers and ominously for unionists, members can MSPs, as well as to heighten Ireland’s also opt out to pursue bilateral and profile and represent the Irish multilateral co-operation with other community in Scotland. This remit has members. This was an inviting prospect translated into some difficult decisions for Scottish ministers wishing to elevate for consulate staff, among them the status of a newly devolved Scottish advising Bertie Ahern to cancel a visit to Parliament through the pursuit of direct Scotland in 2001. The Taoiseach’s visit links with an independent EU member was to have included an ‘Old Firm’ state, the . game between Glasgow Celtic and Rangers and the unveiling of an Irish The First Minister for Scotland, Jack Famine memorial at Carfin, near McConnell, appeared to be particularly Motherwell in Lanarkshire. However, the keen on engagement with Bertie Ahern Consul-General received a letter of and Irish ministers and parliamentarians. objection to the visit from the local The Taoiseach himself engaged actively Labour MP, Frank Roy. He expressed with the newly devolved administrations fears that the visit would stoke in Scotland and Wales – so much so sectarian tension. that the acerbic unionist columnist Tim Luckhurst raged in the Spectator that While that private visit was cancelled, Irish diplomats and politicians “are the Taoiseach did eventually make an sponsoring separatist instincts in official visit to Scotland a number of component parts of the UK”6. months later and successfully unveiled McConnell visited Ireland privately in the memorial despite, somewhat 2004 to observe the introduction of the ironically, the attention of a small smoking ban there before deciding on number of republican demonstrators its introduction in Scotland. He then demanding the release of the IRA killers made an official visit in November 2006 of Garda Gerry McCabe. However at Mr Ahern’s invitation. In a joint during the official visit the Irish statement the pair pledged to support Consulate was again dragged into an co-operation under the new EU unsavoury incident when the Scottish Programme for Cross-Border Territorial National Party MSP Winnie Ewing Cooperation, as well as announcing objected to the display of the Union discussions on business, research and Jack in the chamber of the Scottish education co-operation that would form Parliament where the Taoiseach was due the basis of a future joint plan of action. to speak. Eventually it was made clear that the Consulate had not been Another important milestone occurred consulted on the matter7. 10

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The Academy and the Arts Studies at the University of Aberdeen, made a submission to the Scottish The contemporary renaissance of the Parliament’s inquiry into possible co- relationship between Scotland and operation between Scotland and Ireland Ireland in the academic and arts fields in which he outlined funding that had has had a much smoother ride. Various already been secured for research in this arts festivals, academic initiatives, area. Emerging from the wider ISAI centres and institutes have been network, the AHRC Centre for Irish and created. These have included the Irish- Scottish Studies at the University of Scottish Academic Initiative (ISAI) in Aberdeen, which was established in 1995; the Research Institute of Irish- partnership with Queen’s University Scottish Studies at the University of Belfast and , has Aberdeen in 1998; the Arts and received two tranches of research Humanities Research Council (AHRC) funding for work conducted in the areas Centre for Irish and Scottish Studies, of history, languages, literary and also at the University of Aberdeen; and cultural studies. The first tranche, from a plethora of annual arts festivals 2001 to 2005, amounted to over including the Celtic Connections Festival £800,000 and funded research and the Celtic Film and Television programmes on the Irish and Scottish Festival (to be re-launched as the Celtic diaspora, the languages of Ireland and Media Festival in 2007). Scotland, and the literatures of both countries9. The AHRC Centre for Irish ISAI was embarked upon in 1995 as a and Scottish Studies was also successful formal link between Trinity College in being awarded a second round of Dublin, the University of Aberdeen and funding amounting to £1,340,000, the the University of Strathclyde in the largest award ever made by the AHRC10. subject areas of history (Celtic Studies) and Literature (in Irish, Scots Gaelic and In his submission, Professor Craig English). These universities were joined pointed out that the Centre also in 1999 by Queen's University Belfast engages with interested parties beyond and in 2002 by the University of academia - such as , Edinburgh. The Initiative sought to pool politicians and civil servants - through a resources and expertise in the relevant symposium called the Irish-Scottish areas and facilitate staff and student Forum. The Forum, which is supported exchanges, including the joint by the Irish Consulate in Edinburgh, is supervision of postgraduate researchers. presented as a ‘space’ where key players The Initiative’s most visible activity has and influential individuals can literally been to hold four high profile escape behind closed doors to discuss conferences since 19978. relevant issues of the day affecting Ireland and Scotland11. Professor Cairns Craig, the Director of the Research Institute of Irish-Scottish In the arts sector, the Celtic Film and 11 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

Television Festival has been running Objective (2007-13) for the European since 1980 and draws entries from Regional Development Fund (ERDF). The Brittany, Cornwall, Galicia, Ireland, new Objective follows the same three- Scotland and Wales. Its aim is to strand structure of INTERREG III: cross- promote the languages and cultures of border co-operation (strand A), Celtic countries and regions primarily transnational co-operation (strand B) through film and television. The festival’s and inter-regional co-operation (strand major activity is an annual three-day C). It is a change to the regulations for event that draws entries from state the cross-border co-operation strand broadcasters and independent film, that provides the new opportunity for television and radio production co-operation between Ireland and companies. It is peripatetic in nature, Scotland. The inclusion in the the Isle of Skye hosting the 2007 regulations of a provision for a 150 festival. kilometre maritime border eligibility criteria enabled the European In contrast, the Celtic Connections Commission and the British and Irish music festival, which dates from 1994, governments to agree that parts of is domiciled in Glasgow. The festival West Scotland were eligible for funding provides a fillip for the city during the under the strand: parts of the border bleak mid-January lull, with upwards of counties of the Republic of Ireland 100,000 festival-goers attending rock (notably Donegal) and parts of West concerts, choral performances, folk Scotland are separated by a maritime sessions, piping displays and ceilidhs, border of 150 kilometres or less. all under a loose ‘Celtic’ banner. While both festivals draw participants and However such an Ireland-Scotland audiences from far and wide, their programme would have been relatively festival programmes are dominated by small, so the European Commission artists from Ireland and Scotland. proposed that West Scotland be included in the Ireland-Northern Ireland New EU funding opportunity Cross-Border Programme12. Consequently the EU Territorial Cross- Now a new EU funding opportunity for Border Co-operation Programme for Ireland-Northern Ireland-Scotland cross- Ireland-Northern Ireland-Scotland border co-operation has opened up, (2007–13) emerged. It is applicable to with the potential to expand the the whole of Northern Ireland; six number of areas for co-operation to border counties of the Republic of enterprise, tourism, the protection of Ireland – Donegal, Leitrim, Sligo, Louth, the environment and transport. and Cavan; and Western regions of Scotland – Dumfries and As the successor to its INTERREG III Galloway, Ayrshire, Lochaber, Skye and programme (2000-6), the EU proposed Lochalsh, Argyll and the Inner a European Territorial Co-operation Hebrides.13 It is estimated that the 12

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amount of funding to be made available submissions to the inquiry and for the programme will be in the region expressed a keen interest in helping to of Û200 million.14. develop enterprise, entrepreneurship and small business projects, particularly This programme must support joint those focussed on remote rural strategies for promoting cross-border communities. In its submission, Scottish economic, social and environmental Enterprise suggested that co-operation development and focus its assistance on would yield a beneficial exchange of a number of areas. These include ideas and enable the development of enterprise, through support for those ideas through joint research and entrepreneurship in cross-border trade feasibility studies, leading to joint action and tourism; the protection of the plans in, for example, the fields of environment, with an emphasis on exporting and market diversification. cross-border strategies for tackling Meanwhile, the Scottish Council for waste management, pollution and the Development and Industry maintained emission of greenhouse gases; urban- that small businesses in remote parts of rural linkages to counteract the negative West Scotland could glean valuable aspects of isolation; access, including expertise from their Irish counterparts in improved access to transport, meeting the challenges of globalisation. information and communication Such intermediary organisations appear networks and services; and co-operation to be well placed to help exploit the with a focus on policy development and opportunities for enterprise and delivery in the health, culture, tourism, entrepreneurship arising from the new education and labour mobility sectors15. cross-border co-operation programme.

The five main areas for suggested co- The cross-party parliamentary delegation operation that predominate in the to Ireland also saw scope for rural Scottish Parliament’s inquiry and two businesses in Scotland to learn from related reports – enterprise, culture, established rural business projects in tourism, environmental protection and Donegal, such as the Dunlewy Project16. transport – are commensurate with In addition, the delegation advocated an these EU priorities. What follows is a Ireland-Northern Ireland-Scotland brief consideration of the proposals business event or forum and offered to made and the concerns expressed in pursue Scottish Parliament assistance for these three documents, set against the such an event. The report by the likely opportunities and limitations European and External Relations posed by this new EU programme. Committee supported the idea that Scottish business interests could benefit Enterprise from partnerships with their Irish counterparts, and noted the enthusiasm A number of enterprise agencies on of the Donegal County Enterprise Board both sides of the North Channel made for such a venture. 14 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

Tourism Donegal County Enterprise Board had teamed up to study the advanced Many submissions made the development of ‘walking tourism’ in development of tourism a top priority Scotland. The County Council official for cross-border funding to the three responsible for the initiative argued that jurisdictions. Joint tourism marketing there are opportunities for Irish-Scottish programmes for sailing, fishing, golfing, co-operation in this area, particularly in whiskey and heritage trail holidays joint marketing. featured prominently in these submissions. Ulster Scots heritage trails, Culture concentrating on the Plantation of Ulster and Ulster Scots language and Cultural links are closely aligned with culture, were suggested in submissions tourism in many of the submissions, from Northern Ireland and Donegal. though some aspects, such as More than one had an eye on the North languages, music and story-telling, are American market, which was regarded also recommended for funding in their as relatively untapped compared to the own right. While some advocate cross- success of the mainstream Irish heritage border links to promote Gaelic or Ulster industry. In this regard, Tourism Ireland Scots culture though these media, may have a useful promotional role others support cross-border, cross- to play17. cultural Gaelic and Ulster Scots exchanges at local community and Another joint tourism initiative stems individual level. In this regard, the cross- from Northern Ireland’s foremost party delegation was keen on funding motorcycle road race, the North West for Irish, Northern Irish and Scottish 200, which takes place each May cross-cultural events. It suggested that between Portrush, Portstewart and an event marking the 400th anniversary Coleraine. A number of Northern Irish, of the and the Irish and Scottish rural development Plantation of Ulster could be linked with agencies have already begun co- the Year of Highland Culture to provide operating in an effort to exploit this an important platform for closer Irish- prestigious showcase under the banner Scottish co-operation and cross-cultural ‘motorbike tourism’. exchange. Another idea was joint concerts involving Irish, Northern Irish Environment-friendly tourism was also a and Scottish fiddle orchestras. concern of submissions detailing cross- border opportunities for eco-tourism, as In the past cross-border, cross-cultural well as ideas for ‘sustainable tourism’ projects have been funded under a involving walking and cycling holidays. cross-border measure of the EU Peace During its fact finding visit to Donegal, programmes (in which Scotland is not the cross-party delegation heard how included), rather than under the Donegal County Council and the INTERREG programmes. However there 15

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is scope for funding such projects under Scotland and Ireland was also the new Ireland-Northern Ireland- highlighted as being advantageous for Scotland Territorial Co-operation new environmental energy projects Programme because of the ERDF priority based on wind and wave power. The area entailing co-operation for policy cross-party delegation focused on development and delivery in, among renewable energy and initiatives for others, the culture, tourism, and replacing carbon-based fuels. education sectors. Suggestions for funding included pilot schemes for advancing wave technology Environmental Protection in the North Channel.

Climate change has moved centre stage Transport as an issue for consideration in EU policy-making. Therefore proposed Improving transport links between cross-border ecological and Ireland, Northern Ireland and Scotland environmental protection projects are was a major area of concern for the likely to receive a fair wind in the parliamentary cross-party delegation and context of the new programme. ranked highly in many of the Environmental problems traverse land submissions to the inquiry. The re- and maritime borders. Coastal and instatement of the Ballycastle- maritime contamination is exacerbated Campbeltown ferry service was a by an increase in tourism, eco-friendly or prominent issue. In July 1997 an not. In his submissions to the inquiry, unsubsidised Ballycastle-Campbeltown the Ulster Unionist MEP Jim Nicholson ferry service was launched by the Argyll drew attention to the fact that Ireland and Antrim Steam Packet Company and and Wales had already been INTERREG ran two return sailings daily. However partners in a ‘Clean Coasts’ project that the company discontinued the service in included an awards scheme for rural 1999 after unsustainable losses. In 2002 beaches, local community involvement a tendering exercise failed to attract in beach management, and raising interest. Again, despite the offer of a awareness of coastal pollution problems. £1m per year subsidy from the Northern Such a project could be emulated in the Ireland administration and the Scottish Ireland-Northern Ireland-Scotland Executive to re-launch the service in context. 2006, the firms invited to tender - Harrisons (Clyde) Ltd, the Isle of Man A submission from Stirling Council Steam Packet Company, Serco Denholm argued that funding in this area should and Western Ferries – declined to do so. begin with cross-border educational In assessing the suitability of this service projects that would help to advance the for funding under the new EU Eco-Schools programme in Scotland and programme two obvious questions the Green Schools programme in present themselves: 1) How large does Ireland. The peripheral location of the subsidy need to be before a tender 16 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

is submitted and accepted? 2) Does the programmes under the transnational ERDF priority area of improved access to strand, Scottish and Irish partners transport permit assistance to be given, require at least one other partner from in the form of a large subsidy, to a another country. commercial company operating a ferry service that has proven to be unviable The Northern Lighthouse Board in commercially even when operated only Scotland and the South West Regional during the summer months? The likely Authority in Ireland were partners (with answers do not augur well for the others from England, the Canary Islands, resumption of this service with EU and Spain) in the Atlantic funding. Lighthouses (At Lights) project, which was funded under the transnational Some submissions also suggested that strand of INTERREG III and was aimed at EU funding be directed towards rail and sharing information and experiences on road improvements, particularly the uses for surplus lighthouse property. winding A75 and A77 trunk roads Argyll and Bute Council was also leading from the Scottish ports of involved in a transnational project – with Stranraer and Cairnryan to the M77 and Irish, French and Dutch partners – on M6 motorways to Glasgow and the spatial development of offshore England. The Scottish Conservative MEP, islands. Moreover this local council John Purvis, believed that such an availed of exchange opportunities upgrade would encourage more Irish afforded under the inter-regional strand hauliers and tourists to avail of the to enable community representatives Rosyth-Zeebrugge ferry service. However from its offshore islands to interact such major infrastructural projects with representatives from similar appear to be well beyond the means communities in Ireland, Sweden, and scope of the EU Territorial Cross- Finland, Denmark and France on the Border Co-operation Programme for issues of coastal development, housing Ireland-Northern Ireland-Scotland and its and renewable energy. relatively modest budget of Û200 million. Interestingly, South Ayrshire Council, which was the lead partner in a trans- Transnational Strands national INTERREG IIIB project involving partners from Ireland and Germany, There has already been some limited lauded the working and learning Irish and Scottish participation in the experience under this strand, and transnational (B) and inter-regional questioned the benefits to be gained strands (C) of INTERREG. These strands from narrower Irish-Scottish cross-border will continue to feature under the new projects because of the strength of European Territorial Co-operation cultural links that already exist between Objective. In the relevant North West the two countries. Europe and the Atlantic Coast 17 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

East-West and North-South ties projects funded under the EU Peace II programme20. Leaders of these groups The Ulster historian A.T.Q. Stewart expressed the view that the cross-border maintained that in premodern times the aspect provided a useful space for North Channel was the centre rather building better unionist-nationalist than the frontier of a Dalriadan Sea relations principally because, in the first cultural province. He wrote: “We can instance, it facilitated interaction with a easily forget that mountains, forests and less threatening Irish nationalist ‘other’ marshes were at one time greater from south of the border. obstacles to man than the open sea”18. Arguably the contemporary advent of Of course such a North-South cross- high-speed ferries and budget airlines border space still remains off-limits for are conspiring again to make that many unionist and loyalist groups. For ‘North Channel frontier’ highly these groups, entry into an Ireland- permeable. Budget flights from the Northern Ireland-Scotland space may be Republic of Ireland to Scottish cities a much more attractive proposition. The have proven to be immensely popular. Scottish Parliament’s European and Approximately a quarter of a million External Relations Committee report Irish passengers were carried by budget stated that co-operation along the airlines operating these routes during Ireland-Northern Ireland-Scotland axis the first 12 months of operation in could be useful in attracting such 2001-219. This movement is mirrored by groups into trilateral cross-border co- similar numbers of Scottish people operation. If so, this particular East-West visiting the Republic of Ireland, approach could complement the North- indicating that the relationship between South cross-border space on the island Scotland and Ireland is not defined of Ireland and thus help downgrade the exclusively by an Ulster Scots ethno- territorial source of the unionist- national allegiance. Broader Celtic ties nationalist conflict. It may also have a are supported by the history of role to play in the Scottish Parliament’s migration, the Gaelic language, folklore, campaign for tackling residual traditional music and sport. There is, sectarianism in the West of Scotland. therefore, a danger that strategic steps for developing the Ireland-Scotland Conclusion relationship will simply present another cultural platform for the nationalist- From the documentary evidence unionist conflict. considered in this article, there is strong support for reviving the relationship On the other hand, recent research between Ireland, Northern Ireland and found some Ulster unionist and loyalist Scotland. The Northern Ireland peace groups engaging productively in North- process, the establishment of the South cross-border, cross-cultural Scottish Parliament and the new EU 18 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

cross-border co-operation funding limitations of the new EU programme opportunity have been the primary are considered, it appears that some factors responsible for this support. over-ambitious proposals have been Scottish parliamentarians, the Special EU made, especially in the area of Programmes Body, and local community transport. However many proposals in and enterprise groups on both sides of areas like enterprise, culture, tourism the North Channel have been and environmental protection are within particularly pro-active in their approach the scope of the programme and could to developing proposed ideas for the form the basis of viable cross-border new EU programme. projects.

However there are also some signs of Projects relating to culture, arts and ongoing political tensions and alienation education may provide the most obvious in the Ireland-Scotland relationship that means of facilitating an Ireland-Northern are emblematic of the unionist- Ireland-Scotland cross-border, cross- nationalist conflict. It is perhaps cultural dialogue which can build on the significant that no Irish nationalist or space offered by the Irish-Scottish Forum republican politician made a submission of academics, journalists, politicians and to the inquiry. Meanwhile, submissions civil servants to help address issues of from unionist politicians tended to sectarianism, insecurity and alienation. ignore the ‘Ireland’ part of the equation Other economic and environmental and instead concentrated exclusively on areas of the programme may help the development of a Northern Ireland- contribute to that goal indirectly, since Scotland relationship, and the Ulster economic, environmental and social Scots culture and identity. For example, problems don’t stop at state borders in his submission to the inquiry, the (indeed they are often exacerbated by Democratic Unionist MEP Jim Allister those borders). The development of this protested: “For too long government East-West cross-border corridor can only has encouraged unnatural north-south complement the North-South space on co-operation to the detriment of our the island of Ireland that has opened up most natural and positive area of co- in recent years through mutually operation and mutual benefit, namely beneficial cross-border projects, since on an east-west basis.”21 both exist to help tackle such problems.

Notwithstanding continuing political Dr Cathal McCall is a Lecturer in tensions, Denis Canavan, the European Studies at Queen’s independent MSP who led the inquiry, University Belfast. reported a strong appetite for co- operation with Scotland among people across the board in Ireland, North and South. When the scope and financial 19 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

ENDNOTES Queen's University, Belfast (2003); and the National Identity and 1. http://www.scottish.parliament. Cultural Exchange in Ireland and uk/business/committees/europe/inqui Scotland conference, held at the ries/scotirel/ScotIrelEvidence.pdf University of Edinburgh (2004).

2. http://www.scottish.parliament.uk/ 9. Thus far, the programmes have business/committees/europe/reports- produced a number of publications, 06/eur06-03.htm notably Ireland and Scotland: Culture and Society, 1700-2000, 3. http://www.scottish.parliament.uk/ edited by L McIlvanney and Ray corporate/elu/Webreports/CP- Ryan (Dublin: Four Courts Press, ReportOnIrishScottishCo- 2005). operation.pdf 10. Examples of comparative projects 4. http://www.british-irishcouncil.org funded in the second round include: Irish and Scottish diasporas from the 5. Lynch P. and S. Hopkins 2001. ‘The 1600s to the present, led by Dr British–Irish Council: Progress Michael Brown (University of Frustrated’, pp. 753-758 in Regional Aberdeen); and A comparative study Studies: The Journal of the Regional of twentieth-century Irish and Studies Association, vol. 35, no. 8. Scottish poetry, led by Professor Edna Longley and Dr Fran Brearton 6. Luckhurst, Tim, 2001. ‘The Wit of (Queen’s University, Belfast). Linked the Irish’, pp. 20-22 in the to the projects are four postdoctoral Spectator, no. 24. fellows and four PhD students.

7. Collins, Pádraig, 2001. ‘Taoiseach 11. The subject for discussion in the unveils memorial the Famine’, Irish 2007 Irish-Scottish Forum is the Times, 20 June meaning of the Union in the [www.ireland.com/newspaper/breaki modern world. ng/2001/0620/breaking16.htm]. 12. The Special EU Programmes Body 8. The Celebrating Columba (SEUPB), which administers the EU conference, held at the University of Peace and INTERREG programmes in Strathclyde (1997); the Ireland & Northern Ireland and the Southern Scotland: Nation, Region, Identity Border Counties, made conference, held at Trinity College representations to the European Dublin (2000); the Ireland (Ulster) Commission to this effect. Scotland: Concepts, Contexts, Comparisons conference, held at 20 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

13. It is possible that some funded 21. http://www.scottish.parliament.uk/ activity will extend to the Outer business/committees/europe/inquirie Hebrides/Western Isles. s/scotirel/ScotIrelEvidence.pdf

14. http://www.seupb.org/consul_ tcprogrammes.htm

15. http://www.seupb.org/consul_ tcprogrammes.htm

16. The Dunlewy Project is a tourism development project that has a strong emphasis on community development and environmental protection.

17. Tourism Ireland was established as a publicly-owned limited company in 2000 for the purpose of promoting the island of Ireland as a tourist destination. Its primary activities include planning and delivering tourism marketing programmes, and publishing and disseminating worldwide tourist information on the island.

18. Stewart, A. T. Q., 1997. The Narrow Ground: Aspects of Ulster 1609- 1969. Belfast: Blackstaff, p.35.

19. Scotsman, 30 August 2002.

20. McCall, Cathal and Liam O’Dowd, 2007. ‘Hanging Flower Baskets, Blowing in the Wind? Third Sector Groups, Cross-Border Partnerships and the EU Peace Programmes in Ireland’, in Nationalism and Ethnic Politics, vol. 13, no. 4 (forthcoming).

21 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

JOINED-UP THINKING ACROSS THE IRISH BORDER: MAKING THE DATA MORE COMPATIBLE

Rob Kitchin, Brendan Bartley, Justin Gleeson, Mick Cowman, Stewart Fotheringham and Chris Lloyd

Rob Kitchin Brendan Bartley Justin Gleeson

Levels of co-operation between government bodies, semi-state agencies, community groups and private industry in Northern Ireland and the Republic of Ireland are increasing rapidly with respect to issues such as coordinated infrastructure planning, health care, trade and enterprise, as well as peace and reconciliation. These initiatives require joined-up thinking and detailed rationales for their formation and funding, which in turn are dependent on evidence-based arguments. However, at present, providing consistent, coherent and reliable evidence on a cross-border basis for use at different scales is extremely difficult due to issues of data interoperability across the jurisdictions. In other words, data are often incompatible and therefore difficult to compare. Addressing issues of data interoperability is crucial to successful cross-border, evidence-based initiatives.

There is a reason why it is relatively rare able to create them. This is not to say to see all-island maps of Ireland other that detailed information for both than those in a road atlas - they are very jurisdictions does not exist – it often difficult to produce. And when they are does – or that there has not been a produced, they usually have a small wealth of spatial analysis undertaken in print warning about interpretation: the North or South – there has – but something has had to be fudged to be rather that data in the two jurisdictions 22 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

are largely incompatible as they are of common data formats for recording presently produced. As a consequence, and storing datasets so that they can be undertaking cross-border or all-island easily conjoined. spatial analysis faces a number of technical and other challenges. In this In the case of the Republic of Ireland paper we outline these challenges and and Northern Ireland, these initiatives detail the work of the Cross Border have largely been confined to the level Regional Research Observatory (CBRRO) of the nation state and only recently has in seeking to address them. there been any real concern to improve cross-border interoperability. As a Poor interoperability consequence, two separate approaches to data generation have developed, Interoperability in this context concerns leading to poor interoperability on a the extent to which datasets that have number of levels. These problems exist been sourced separately can be used in in relation to nearly all types of data – conjunction with each other. If two sets including those relating to health, of data cannot be used together economy and enterprise, transport, because they do not share common environment, planning and development attributes, then they are said to have – but we confine our discussion here to very poor interoperability. Given that it is a fundamental source of demographic highly desirable that datasets can be and socio-economic data, the Census of combined so that sophisticated analyses Population. The census in Northern can be undertaken, a series of different Ireland is administered by the Northern approaches have been adopted to try Ireland Statistics and Research Agency and ensure strong interoperability. These (NISRA) and in the Republic by the approaches include: (1) data agencies Central Statistics Office (CSO). While working closely together to ensure both censuses seek to record very similar compatibility with regard to things such types of data, they differ in a number of as data definitions and spatial units; (2) important respects. the establishment of various international data standards and 1. The questions being asked conventions; (3) a drive towards national and transnational spatial data Although the censuses in Northern infrastructures that provide common Ireland and Ireland share a common frameworks and standards across legacy and appear to be quite similar, borders and areas of concern (e.g. they are prepared largely independently health, welfare, the economy); (4) the of each other. While many of the development of detailed metadatabases questions that are asked are either (data about data) that document what directly the same or very nearly the data are held by different agencies and same in wording, a substantial number their attributes; and (5) the development of questions examine the same issue 23 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

differently or there is no equivalent Accordingly, a reclassification of answers question. Of the 1161 SAPS (Small Area might be needed in order to achieve a Population Statistics) variables outputted more meaningful correspondence. from the 2002 census in the Republic of Ireland, our analysis estimates that 32 2. Data units and categories percent of variables can be directly matched to the Northern Ireland census, Similarly, the data being collected in the 31 percent can be part-matched or two jurisdictions might be recorded into reclassified so that they broadly match, different data units (e.g. euros instead and 37 percent have no equivalent. This of sterling), or into different data means that over two thirds of all census categories, or be outputted into varying variables published in the South have no classes. This effect is illustrated in Table direct equivalents in Northern Ireland 1 which shows the different categories without manipulation. For those issues into which people are classified with where similar but different questions are respect to social class/grade in the asked, it is important to note that Northern Ireland and the Republic of caution is necessary in comparing and Ireland. While the categories are broadly interpreting the resultant answers across similar, there are some significant the two areas. This is because the differences that make straight question can be measuring highly comparison problematic. For example, related but subtly different phenomena semi-skilled and unskilled are separate or because the choices given to classes in the Republic but are classified respondents do not match precisely. together in Northern Ireland.

Table 1: Comparing social class/social grade RoI NI

Professional Workers AB. Higher and intermediate managerial / Managerial and technical administrative / professional Non-manual C1. Supervisory, clerical, junior managerial / Skilled manual administrative / professional Semi-skilled C2. Skilled manual workers Unskilled D. Semi-skilled and unskilled manual workers All other gainfully occupied E. On state benefit, unemployed, lowest grade workers

24 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

There are many other examples. territory to which they refer. In other Occupations classed into seven different words they have an underlying ‘output categories in the broad classification geography’. The output geographies for (SAPS) for the Republic of Ireland are all Northern Ireland and the Republic classed into the same category in the of Ireland differ quite significantly below broad classification for Northern Ireland the NUTS 3 level (which are counties in (Elementary Occupation). The reverse the Republic and five areas slightly can also happen: for example, in bigger than counties in Northern Northern Ireland a judge and a refuse Ireland). In the Republic census variables worker are classed as Professional are coded at Regional, County and Occupation and Elementary Occupation Electoral Division (ED) level (along with respectively, but in the Republic of other more specialised units such as Ireland both are classified in the SAPS Gaeltacht areas). In the North they are data in an all-encompassing ‘Managing, coded at District, Ward, Super Output Administrative, Executive and Areas, and Output Areas (OA) – along Government Workers’ class. In these with other areas such as Health and cases full compatibility can only be Social Service Boards, Education and achieved through the creation of Library Boards, and Parliamentary common output classes for both parts Constituencies. As illustrated by of the island and the reclassification of Table 2, the characteristics of these data, but this takes time and careful areas are quite different, with wards thought to minimise any validity issues. having populations on average significantly larger than EDs, and OA 3. Spatial scales populations significantly smaller.

Nearly all data have spatial attributes that allow them to be mapped onto the

Table 2: Comparing output areas between North and South

Unit Number Av. Population Av. Size (KM sq) ED 3414 1062 20.4 OA 5022 337 2.8 Ward 582 2895 24

25 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

Because data in the two jurisdictions are and Monaghan EDs and Fermanagh reported at different spatial scales, a OAs, and the map on the right shows scalar modifiable area unit problem the population count for Cavan and arises. In short, spatially referenced data Monaghan EDs and Fermanagh wards. can be aggregated into zones of varying In the first map, because EDs have sizes. The level of aggregation affects significantly larger populations than what patterns are revealed because the OAs, the immediate inference one internal variances within a zone alter as draws is that Fermanagh in Northern more data are added. What this means Ireland appears to have a uniformly is that the same data outputted at lower population distribution than either different spatial scales can show Cavan or Monaghan in the Republic of remarkably different patterns and Ireland. In the second case, wards, by statistical relationships with other data and large, have a much greater (see Fotheringham and Wong 19911). population than EDs, and the opposite As we have discussed, in the case of inference is drawn: that Fermanagh’s comparing data between Northern population is uniformly higher than that Ireland and the Republic of Ireland there of Cavan and Monaghan. In other is no common output area. As a result, words, the pattern that is displayed is the aggregation effects on internal not simply due to the population variances are different between the two distribution, but is affected significantly jurisdictions, making them statistically by the spatial scale of output. difficult to compare. Addressing this problem in the absence of a common spatial data unit is a The visual effect of this is displayed in complex process and is not easily Figure 1. Here, the map on the left resolved. shows the population count for Cavan

Figure 1: Comparing data outputted at different spatial scales: Fermanagh and Cavan/Monaghan

26

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Beyond the census there are a number comparisons, a five year gap is a of significant issues with regards to significant time period, and comparing address matching. While Northern data collected in 2006 in the South with Ireland has postcodes with a very fine that collected in 2001 in the North spatial resolution (there are 56,114 would be highly problematic. Related to postcodes averaging 20 addresses per this is the problem of drawing on 2001 postcode2), in the Republic of Ireland census data as time progresses. For there is no equivalent, and because of example, by 2010 Northern Ireland will the large proportion of non-unique be, in many ways, quite different to addresses it is very difficult to pinpoint how it was in 2001, and yet this will be precisely an address even with the the last full census from which to draw development of a new geo-referencing socio-economic data (although NISRA product, GeoDirectory3. will have collected other related data in intervening years). 4. Time series 5. Data continuity There is another difference between the two maps in Figure 1. Because of the In order to be able to easily compare outbreak of Foot and Mouth disease, data across time periods, it is important the census in the Republic of Ireland that both the data generated and the was delayed by a year. As a result, the areas into which they are outputted data for Fermanagh refers to 2001 have continuity. In both Northern Ireland whereas the data for Cavan and and the Republic of Ireland there are a Monaghan is from 2002. While a year number of continuity issues that need to seems a relatively short period, during be addressed. For example, in the this time the South was experiencing Republic, for each census year between significant population gain. Indeed, a lot 1981 and 2002, the number of SAPS can happen in a short period, such as a variables released has varied (from a low large employer closing down and of 774 in 1981 to a high of 1750 in thereby altering local employment rates. 1991) as some questions have been added to the census form and others While the two censuses are aligned discontinued. Clearly in these across a period of decades (1981, 1991, circumstances it is impossible to 2001/02, 2011), the census in the compare new or discontinued variables Republic also occurs on a five yearly over time because no comparable cycle (1986, 1996, 2006, 2016). As a data exist. consequence, while the Republic of Ireland will have data relating to 2006, In Northern Ireland there have been Northern Ireland only has data for 2001. significant changes to the spatial units While a year’s difference might be for which data are outputted. For manageable when making cross-border example, ward boundaries were altered 27

JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

in both 1984 (566 wards) and 1992 take account of policy or regime will (582 wards). As a result, while many lead to erroneous conclusions. wards remained the same between the 1991 and 2001 censuses, others had 7. Metadata and data clarity their boundaries altered or were merged with other wards, and some renamed4. In general, census data provided It is a difficult task directly to compare through NISRA and CSO has metadata – data outputted into different spatial data about existing data, usually units because of discrepancies in the concerning its availability, organisation underlying geography. The boundaries and use – that makes them relatively were altered again in 2002, meaning easy to understand and work with. Such that the 2011 census will have a summary information is not always different ward geography to previous available for other kinds of data. There censuses. Changes also occur at other are two general metadata issues. First, scales, such as at district council level metadata on what data exists within (e.g. in 1992 the ward of Rathfriland both jurisdictions is patchy, with no one was transferred from Newry and resource that lists all the sources of Mourne Local Government District to national and regional coverage data. Banbridge Local Government District), Second, metadata about specific data and at postcode level where boundaries sources is patchy about the composition are subject to continuous change due to (foci, variables and coverage) of new addresses and alterations to the potential data or issues relating to cost, built environment. licensing and usage. In some cases, data users have to discover this metadata for 6. Context themselves, tracking down specific sources of information or by ‘playing’ In some cases census data differ, and with the datasets to find out what it the interpretation given to data needs to comprises. While some census data are differ, because of the context in which reported as raw data counts that can the data are collected. Different policies then be analysed by users as desired, it and economies operate across the two is not always clear what the data consist jurisdictions, meaning that the issues the of in other cases. This is especially the data purport to measure are shaped in case if data are not raw counts or different ways. For example, take home percentages but are the outputs of a or disposable income varies as a statistical formula. Without knowledge function of the tax regime, not simply of how the data were derived it is the level of earnings, and the number of difficult to interpret what they show. people living in local authority housing is dependent on housing policy and public 8. Availability and sourcing sector provision. In these cases a straight interpretation of the data that fails to Adding to these concerns, and drawing from our own experience, it is clear that 28 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

there are substantial issues with regard noted, including the Irish Spatial Data to the availability of data and the Infrastructure (ISDI) committee and sourcing of data in general. While these working groups in the Republic of problems are limited with respect to Ireland; and the Mosaic initiative census data, which are freely available (geographic information strategy) in for both jurisdictions, they clearly Northern Ireland, including Geohub (a operate with regard to other data. Many central resource for spatial data for data, especially relating to enterprise Northern Ireland). There are also four and innovation, are either not available cross-border initiatives: (a) the Spatial in one jurisdiction or the other, or are Indicators project that provides cross- only available at certain scales (e.g. at border land cover and use modelling the national scale but not at the using the Moland model; (b) the North- regional, county or sub-county scale). West Data Capture project that is This clearly limits the analysis that can seeking to provide a common cross- be undertaken and provides only a very border dataset for planning in the - weak and generalised view when Donegal region; (c) the Mapping seeking to make comparisons. INTERREG project, led by the International Centre for Local and In addition, we have encountered Regional Development (ICLRD), that is problems trying to source data we knew seeking to spatially reference and map existed because they are not openly the funded projects detailed in the published or are not published at the Centre for Cross Border Studies’ Border scales required. Further, in some cases it Ireland database; (d) and the Cross- has not always been clear who is Border Regional Research Observatory responsible for compiling and publishing (CBRRO), which we outline in more data, making it difficult to track down. detail below. Despite these projects, it is Related issues concerning data fair to say we are at the start of a very availability are cost, licensing long process in terms of improving arrangements and data formats. Data in evidence-informed decision-making and both the UK and the Republic of Ireland all are confronted by the problems tend to be relatively expensive and there detailed above. are a number of restrictions on how the data can be used. The Cross-Border Regional Research Observatory (CBRRO), based in the Addressing interoperability: Cross Border Centre for Community The CBRRO Development in Dundalk Institute of Technology, was established in February The issues discussed above are well 2006, and funded as a pilot project by known to those working within data the Special EU Programmes Body for an agencies and they are certainly of initial six-month period. The initial aim concern to them. Several initiatives are of CBRRO was to work towards underway to address the problems providing precise and reliable regional 29 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

intelligence that would enable a better Fourth, we undertook an additional understanding of the dynamics of the study compiling a socio-economic profile cross-border region, and aid the of the Border counties, Northern Ireland formulation of strategic policy and Western Scotland that enabled us development and cross-border to work with and examine data from a cooperation. Good cross-border, variety of sources beyond the census. regional intelligence is dependent on Fifth, we have started to develop an solid evidence. And as we have seen, initial set of tools designed to improve there are a number of outstanding data interoperability and help data users issues concerning the interoperability of understand and maximise their use of cross-border data. To help address these cross-border data. And finally we issues throughout 2006, the CBRRO scoped out what a long-term CBRRO undertook six key tasks with a view to would look like and what it would seek establishing a full-scale Regional to achieve. Research Observatory that would operate for several years to come, It is most useful to concentrate here on working with data agencies and those the fifth of these points and some of that use their data. the tools we have started to develop to help people access, make interoperable First, a full review was undertaken of and analyse existing data sets. The what datasets are compiled in Northern CBRRO has developed a web-based Ireland and the Republic of Ireland, the interface to cross-border census data nature and format of the data, along and associated metadata that consists of with their source, cost, license four key modules: arrangements, scale, and the extent of - a metadata portal interoperability with comparable, cross- - a priority indicators module border data. In particular, a detailed - a mapping module examination was undertaken of the - a geographic profiling tool censuses in both jurisdictions to determine the level of compatibility The metadata portal is split into three between variables. Second, we components, each detailing information established a baseline of what spatial for both Northern Ireland and the analysis is presently undertaken within Republic of Ireland: a directory that or between both jurisdictions, what kind provides contact details and links to key of analysis is being performed, by whom organisations; a publications and reports and for what purpose. Third, we repository providing direct access to key examined the work of other regional documents; and a spatial data inventory research observatories operating that consists of a metadatabase of all elsewhere, including their structures and spatial-referenced data. The priority functions, the research they undertake, indicators module consists of access to a their outputs, how they are funded, series of pre-prepared, interoperable and so on. 30 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

Figure 2: A sample of all-island, priority indicator maps showing (from top left to bottom right) – proportion of population over 65, proportion of people classed as Catholics, proportion of people with higher education, and proportion of people living in local authority housing dark red = higher proportion dark red = higher of population over 65 proportion of Catholics dark blue = very low dark blue = very low proportion of proportion of population Catholics over 65

dark red = high proportion of dark red = higher proportion people aged 16-74 with of people in local third level qualifications authority housing dark blue = very dark blue = low low proportion of proportion of people people with third in local authority level qualifications housing

31 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

maps of key socio-economic variables CBRRO will be populated by more (see Figure 2). The mapping module available data, making time-series provides users with the flexibility to analysis, along with analysis at scales create their own maps of data pre- from the local to the EU levels, possible. prepared so as to be interoperable. It It is also hoped that other tools and uses off-the-shelf software, Instant outputs will be developed, including the Atlas, and users can alter the variables ongoing tracking of key indicator displayed, the output areas, filter data, variables, as well as the publication of and query the map. The geographic regular regional intelligence reports and profiling tool enables relatively a newsletter. sophisticated querying of pre-prepared data by allowing users to define an area Conclusion and to automatically generate data summaries for that area, even if the area Cross-border collaboration across a straddles the border. range of issues has increased substantially in the last few years. In To tackle problems of EDs in the turn, such collaboration has been Republic of Ireland being intersected by accompanied by a desire that initiatives the selected or defined area, a be underpinned by sound, supportive proportioning formula has been evidence that justifies investment and developed that uses the address can reveal the benefits yielded by database Geodirectory to calculate what constructive collaboration. At present, proportion of the population within an however, it can be extremely difficult to ED live within the defined area and to provide such evidence because data are weight the data accordingly. Within often poorly interoperable in a number Northern Ireland, OAs are used, and of important aspects. because they are significantly smaller than EDs there is no need to use a In this short paper we have tried to proportioning algorithm. The data highlight the various ways in which data summaries produced consist of a for Northern Ireland and the Republic of standard text template, an excel Ireland often lack interoperability, and spreadsheet with the results for the why such difficulties are important to defined area plus other useful address. While the CBRRO and other comparator regions (e.g. Northern related projects are starting to tackle Ireland, Republic of Ireland, counties and these issues, it is fair to say that districts), and a set of charts and graphs. substantial long-term research and development is needed in order to It is hoped, subject to licensing achieve progress. Such progress is likely arrangements, that these tools can be to be attained through the work of the hosted on a live CBRRO website. In CBRRO and related projects on the addition, the intention is that the following five fronts, namely: (1) 32

JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

preparing interoperable data across Professor and Director of the several domains; (2) addressing National Centre for fundamental technical issues such as Geocomputation, NUI Maynooth. modifiable areal unit problems; (3) providing new, more sophisticated tools Chris Lloyd is a Lecturer in the of analysis that work on an all-island or School of Geography, Archaeology cross-border basis; (4) helping to and Palaeoecology, Queen’s educate data users; and (5) promoting University Belfast inter-jurisdictional data analysis that will provide the kinds of evidence that will ENDNOTES serve policy makers well. 1. Fotheringham, A. S., and Wong, Rob Kitchin is Director of the D.W.S. (1991). The modifiable areal National Institute for Regional and unit problem in multivariate Spatial Analysis (NIRSA) and statistical analysis. Environment and Associate Professor in the Planning A 23: 1025-44. Department of Geography at the 2. http://www.ninis.nisra.gov.uk/ National University of Ireland, mapxtreme/linkeddocs/Georeference Maynooth. He is also a board Paper_Dec2005.pdf member of the International Centre 3. http://www.geodirectory.ie/index. for Local and Regional Development html (ICLRD). 4. http://www.nisranew.nisra.gov.uk/ Census/metadata/Geography.html Brendan Bartley is Acting Director of NIRSA and a Lecturer in urban planning and geography at NUI Maynooth. He is also ICLRD programme director at NUI Maynooth.

Justin Gleeson is Project Coordinator at the Regional Research Observatory, NIRSA, NUI Maynooth.

Mick Cowman is Director of the Cross Border Centre for Community Development at Dundalk Institute of Technology

Stewart Fotheringham is a Science Foundation Ireland Research 33 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

NORTH-SOUTH AGENDA SETTING IN THE 1960S AND 1990S: PLUS CA CHANGE?1

Michael Kennedy and Eoin Magennis

In September 2005 six Irish seafood companies, from both sides of the border, took part in an all-island pavilion at World Food Moscow. This was the largest annual food and drink exhibition held that year in , with over 1,100 exhibitors from 55 countries Michael Kennedy Eoin Magennis showcasing the latest products in the global food market to Russian retailers. The Irish participants aimed to “meet with Russian food service and retail operators to establish business links” with “long term business potential”.2 The Irish Ambassador to Russia hosted a trade reception during the exhibition to assist in the development of Russo-Irish business links. The venture was part of a cross-border programme, supported by funding, to develop the seafood industry on the island of Ireland.

Forty years previously, in August 1965, blur the Ulster image” and the cabinet a similar exercise in marketing Irish voted against involvement in goods internationally was held in the plan.3 London, making use of the famous shop front of Harrods department store in Faulkner had to explain to Harrods that Knightsbridge. A cross-border presence due to the cabinet’s commitment to was planned by the two industry Northern Ireland’s separate status and ministers, and Brian Faulkner, the ‘Ulster Weeks’ trade promotion but at that time matters were very programme, the Stormont government different for the prospective Irish could not be associated with the participants. When the cabinet in Belfast Harrods’ promotion beyond supplying a discussed Northern Ireland participation list of firms which might be approached. in the exhibition, it caused them So, on the evening of 10 August 1965, considerable concern. Though ‘Ulster the new Irish minister, , goods’ would be included in the display, officially opened the exhibition in it was felt that the promotion “could Harrods, with the sixty-six windows of 34 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

the quarter-mile long shop front all showing goods from over 100 Irish firms. It was the biggest ever promotion of Irish goods in Britain and provided evidence of Irish manufacturers’ ability to compete successfully in some of the most discriminating and rewarding of the world’s export markets.4 Faulkner was not present as, despite his hopes to the contrary, politics and not pragmatism firmly guided the actions of Erskine Childers (left) and Brian Faulkner sign a the Northern Ireland cabinet when it cross-border electricity agreement in the 1960s. came to the development of cross- border relations through economic Ireland has come a long way since co-operation. 1965. In the four decades since then, the ‘good business makes good sense’ The differences between the two events approach has often come to take show that cross-border co-operation in precedence over political sensitivities,

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while export markets for Irish goods problems began to focus the minds of now extend well beyond the United a small number of ministers and Kingdom. Also the role of the European businessmen on both sides of the Union, as funder and supporter of cross- border towards freeing cross-border border co-operation, cannot be ignored trade. This occurred as the creation of today, showing that the changes which the EEC sent ripples of European have occurred are not alone due to integration towards the island on the goodwill generated within the island of western periphery of the continent. Ireland. However, a closer look at the However, progress was slow until ideas behind cross-border co-operation Eamon de Valera in Dublin and Lord in Ireland shows that there is as much Brookeborough in Belfast had both continuity as change. As this article will left office. show, the areas judged most suitable for co-operation have changed relatively Matters began to change when Seán little since the 1960s (see table on Lemass succeeded de Valera in June pages 38-41). Where change has 1959. As Minister for Industry and occurred is in the methods of co- Commerce, Lemass had favoured operation and the political importance developing relations with Northern of these methods to any current and Ireland since the 1930s. On taking future solution to the ‘Northern Ireland office, he promoted co-operation as part question’. of a larger agenda to promote economic growth by opening Ireland to world Changing views trade with the ultimate aim of gaining entry to the EEC. Lemass was conscious Cross-border relations until the 1950s that many government departments in were characterised by stealth and Dublin already had informal contacts caution. Ministers from Dublin and with their Northern Ireland counterparts. Belfast did not meet formally to discuss In early 1963 he asked all government common problems. Such contact as departments in Dublin to review current there was took place between senior and potential areas of cross-border civil servants. However the 1950s saw contact. In September 1963 this review considerable cross-border co-operation produced a detailed plan of areas where to bring into being the Erne Hydro- co-operation existed and could be electric scheme, the Foyle Fisheries developed (see table). Commission and the joint operation of the Great Northern Railway, which The September 1963 agenda provided a connected Dublin and Belfast. These comprehensive list of areas that was were one-off projects and unlike later realistic and non-political, careful to co-operation did not together constitute respect the jurisdiction of the Northern a developed agenda for co-operation. Ireland government and to leave out As the 1950s ended, economic potentially contentious areas, notably 36 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

the and primary despite the continual mistrust and lack education. Unlike in the contemporary of contact between North and South EU, there was no hint of pooling of since the 1920s. Also, for the first time sovereignty, or supranationalism, in this since 1922, Dublin had a coherent plan process. The Irish officials envisaged co- for ‘practical co-operation in matters of operation in the early 1960s primarily as mutual interest.’7 consultation and the exchange of information and mutual assistance in The two lists were developed the development of parallel policies. independently of the events leading to Relatively few common policies were the meetings between Lemass and envisaged, but the areas thought Terence O’Neill in 1965.8 O’Neill, suitable for such an approach are through his private secretary, Jim Malley, familiar today: trade, transport, invited Lemass to Belfast to discuss co- electricity, tourism promotion, cultural operation between the two parts of development, fisheries and the Ireland. Lemass travelled to Belfast on development of the border regions. The 14 January 1965, bringing with him most ambitious proposal was the suggestions for co-operation, which development of an ‘integrated all- further refined the April 1964 Ireland transport system’.5 document. The inclusion of a suggestion to remove the triptyque system, an In April 1964 Lemass oversaw the extremely complicated registration revision of the September 1963 agenda system which made it difficult to take into a focussed list of fourteen areas private cars across the border, shows suitable for cross-border co-operation. how basic were some of the steps He judged that that they “could not required to initiate cross-border contact. give rise to political problems” and The two Prime Ministers agreed that “all “would be worth examining on their possibilities of practical co-operation in merits.”6 The inclusion of ‘customs matters of common concern should be clearance’ as an area emphasises that explored.”9 Lemass agreed to send this agenda for cross-border co- O’Neill a list of matters so that operation was envisaged outside the consideration by the various ministers customs union of the EEC and on a could begin.10 A list of eleven areas was bilateral basis between North and sent to O’Neill in February 1965 and South. It was a basic list that would became the template for cross-border operate under the direction of the co-operation in the 1960s. It covered Dublin and Belfast administrations with the standard areas such as tourism the involvement of external bodies not promotion, agricultural research, cross- anticipated. Although the two lists were border hospital arrangements and uncontroversial, their importance lies in electricity interconnection, but also more the fact that these areas for co- far-reaching proposals for joint work on operation were considered possible inward investment (at least to avoid continued on page 42 37 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

1963: 56-point plan 1965: Discussed at 1974: by Department of the Lemass-O’Neill Meetings Taoiseach (NA = Not Applicable)

HEALTH SERVICES Exchange at professional, official Facilitate cross-border National Health Council / and technical levels of hospital arrangements Drugs Advisory Board / information re control of drugs, where convenience and Medical Research Council infectious diseases, registration urgency make this of births, deaths and marriages / desirable Mutual assistance re use of medical facilities in cross-border areas

ENERGY Co-ordination of work on High tension connection and Electricity generation energy development and limited stand-by connection / Joint co-operation at supply level development of nuclear power and interconnection

EDUCATION Extension of educational tours / Cross-border 'interchanges' of T Irish language courses (NA) / pupils, teachers and scholarships Primary education (NA) / NI children attend 'Special Schools for Handicapped Children' in RoI and inspection by NI inspectors is facilitated / Secondary Education: grants and attendance / Scholarships to Secondary and Vocational Schools / Teachers: reciprocal arrangements re awarding of incremental credit for service / University attendance requirements / Advanced Studies / Technical and technological training

ENVIRONMENT Planning co-operation regarding Pollution, water and sewerage roads, water supplies, sewerage, control in border areas amenities, nature conservation/ Drainage and regional water W supplies

PLANNING Housing policies/ OPW projects / Development of Border Regions

ECONOMIC DEVELOPMENT Cement manufacture/ Turf Tariff Reduction / Joint industrial Promotion of foreign and North-South production/ AFD production/ promotion and co-ordination trade / Management and worker Consulation between Finance to reduce risk of bidding training / Industrial research Ministries on common problems against each other for foreign and industrial design / Membership of Advisory investment Bodies: appointment of N. Ireland persons to advisory bodies in RoI / Joint Advisory Committee on trade and industrial interests / Marketing of agriculture exports (including butter) from NI and RoI as Irish abroad

PUBLIC ADMINISTRATION Exchange of information on Civil Service training public administration / Participation of civil servants in training courses, joint training courses and staff exchanges

38 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

1998: ‘Mitchell Document’ December 1998: Mallon / (*= Not agreed by both governments) Trimble Agreement

Common Policies Joint Decisions Implementation Bodies

General hospital services / Disease registries / Cancer research / High-cost Accident and emergency Clinical trials / High-cost technology / Emergency planning / Food safety technology / Postgraduate planning / Regional hospital training / Health promotion services / Health Promotion strategies strategies / Food Safety Promotion Board

Energy projects

Tourism training / Special Promotion of scientific Special educational needs / educational needs / Education research and its applications Teacher qualifications and for reconciliation / Teacher exchanges / Tackling educational qualification and exchanges / disadvantage Higher and further education / Tackling educational disadvantage

Geological survey / Environmental protection and Environmental Protection Body: Environmental research pollution control / Waste Co-operation in cross-border management / Mapping / areas on pollution control, Wildlife conservation environmental protection and waste management. Development of a strategic approach for the whole island.

Road safety, physical planning and development strategy

Management development Trade Promotion and Trade and Business Development services /Trading standards / Indigenous Company Body (InterTradeIreland) Public procurement / Development Body*: Industrial Supervision of credit unions training, promotion of exports / Health and safety and innovation for indigenous manufacturing and service companies.

continued on next page > 39 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

1963: 56-point plan 1965: Discussed at 1974: Council of Ireland by Department of the Lemass-O’Neill Meetings Taoiseach (NA = Not Applicable)

TOURISM Publicising Ireland as a Joint promotion of Ireland / Tourism promotion T single entity removal of triptyque system for private cars

CULTURE & THE ARTS Joint promotion abroad of exhibitions, drama etc./ Joint information bulletin on 'non-controversial' items/ Improvement of 'image' of Ireland abroad

JUSTICE & LEGAL Informal contacts between Reciprocal practicing rights Registration of births, judges, county registrars, for marriages and deaths prison officers/ police forces/ probation systems/ prison reform/ reciprocal arrangements on extradition for ordinary crimes, enforcing judgements, maintenance orders

AGRICULTURE Education and advisory services/ Co-ordination of agricultural Animal health, movement and pest General policies/ Sugar beet research projects control / Agricultural research production / Veterinary-animal and training /Forestry and disease control/ Agricultural wildlife service research and experimentation/ Agricultural industries (meat processing) / Land annuities: shortening of repayment period / Forestry

FISHERIES Sport and Game /common Co-ordinate fishing and game Sea fishing / Inland fisheries policy on fishery limits and licences and seasons / other matters Joint discussion of sea fisheries policies

TRANSPORT and MARINE Roads and road traffic planning/ Strengthen existing Planning and co-ordination of Co-ordination of cross-channel good relations major roads with particular attention shipping services/ Joint Shipping to cross-border roads /Road Consultative Council / integrated safety and traffic control/ all-Ireland transport system / Fire, Harmonisation of rail passenger air-sea rescue services and common cross-border r road passenger service / Air traffic Control, meteorology, Lough Foyle, Erne, and Carlingford Marine Survey and Irish Lights/ fire brigade

EU POLICIES Structural aspects of Common Agriculture Policy

POST OFFICE Post Office services (NA)

COMMUNICATIONS Closer relationship between RTE and UTV

CIVIL DEFENCE Civil Defence, fallout monitoring and warning

SOCIAL WELFARE Social Welfare: reciprocal arrangements for payments 40 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

1998: ‘Mitchell Document’ December 1998: Mallon / (*= Not agreed by both governments) Trimble Agreement

Common Policies Joint Decisions Implementation Bodies

Tourism Body: Promotion, Tourism Ireland: Public marketing, research and company for promotion and product development for the marketing of the island of Ireland island of Ireland

Heritage protection and Arts Body*: Functions North/South Language Body: restoration / Cultural promoting the arts as Incorporating Irish language promotion abroad discharged by the two Arts and Ulster-Scots language bodies Councils. Irish Language Body*: Promoting use of Irish language, supporting Irish-medium education and voluntary bodies in this area

Research and training / Animal and plant health / Animal and plant health / Bloodstock and greyhound Approaches to Common Approaches to CAP and industries / Rural Agricultural Programme* / trade talks / Rural development / development Education / training Environmental impacts programmes

Management of inland Aquaculture and marine Inland Waterways Body: Joint Inland Waterways Body fisheries / Approaches to EU matters / Drainage / Strategic development and management (Waterways Ireland) common policy on fisheries / planning of fisheries of the inland waterways Fish health / Education, facilities training and research.

Road/rail issues Transport Planning Body: Planning and co-ordination of Co-ordination and development major roads / Road and rail of the major transport services safety/ Loughs Agency and and co-operation on Lights Agency (Foyle, strategic issues relating to Carlingford and Irish Lights road and rail networks Commission) and ports

EU Programmes Body

Support for community activity / Entitlements of cross-border workers / Welfare fraud control 41 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

continued from page 37 competitive bidding) and cross-border agendas were in effect merged. exchanges of school students and teachers. It should be noted that in the 1960s there were very few formal cross-border Into action: 1965-68 structures through which to plan and undertake co-operation. The Foyle The Prime Ministerial meeting of January Fisheries Commission had its specific 1965 endorsed cross-border contact and limited remit and there were some all- opened intergovernmental discussion of island representative professional bodies, cross-border projects and possibilities. but otherwise there was little to work The Northern Ireland civil service with. A resurrection of the Council of meanwhile developed an agenda for co- Ireland, which had been proposed under operation through consultation between the 1920 Government of Ireland Act Permanent Secretaries which was similar and shelved when the Boundary to that which had emerged in Dublin in Commission collapsed in 1925, does not 1963 and which boiled down to “a seem to have been considered. There is continuation of the present relationship, no evidence that any new government perhaps on a slightly more formal basis architecture was deemed necessary. in the future”.11 Meanwhile in Dublin, the Secretary of the Department of Nineteen sixties co-operation was a Finance, T. K. Whitaker, established an Dublin-Belfast operation; there was no interdepartmental committee of senior United Kingdom involvement. In the officials to report progress on cross- absence of institutions, cross-border co- border co-operation to a cabinet operation from 1965 worked through committee chaired by Lemass. an identifiable chain of command. Prime ministerial meetings in 1965, 1967 and A second summit between Lemass and 1968 mapped out the agenda. After the O’Neill took place in Dublin on 9 summits, the work was “given to those February 1965 and undertook “a who have the capacity to do it.”14 general review of the scope for mutually Ministers met and discussed specific beneficial co-operation in matters of areas; civil servants supported this work common interest.”12 The Northern side and implemented agreed results. The expressed general agreement with the initiatives in cross-border co-operation Lemass list, with the exception of trade, were undertaken by the various Dublin which, they pointed out, was a reserved and Belfast government departments area for Westminster.13 They suggested dealing directly with one another. adding fishery co-operation, co- operation in crime detection and a joint In practice, this meant regular cross- relationship between the Dublin and border ministerial level meetings, Belfast Public Record Offices. Lemass meetings which had rarely occurred agreed and the Northern and Southern before and when they did had been 42

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shrouded in secrecy. These cross-border between both parties. There would be meetings led to progress in co-operation minimum provision to cover a in tourism and electricity supply, to breakdown of supply in either area by highlight two of the most important October 1969 and full interconnection areas. Northern Ireland Minister of by October 1971. A joint management Commerce, Brian Faulkner, oversaw board was established to oversee the this work with his Southern process and advise on how to obtain counterparts Patrick Hillery (Industry and the best economies from the project. Commerce) and Erskine Childers The agreement for interconnection was (Transport and Power). the most visible sign of North-South co- operation in the 1960s.16 Faulkner told Initial ministerial meetings enabled the reporters after the signature that “the first joint meeting between the two significance of today’s signing is that it tourist boards on 12 May 1965. Cross- represents a firm decision to translate border air and rail links were discussed theory into practice” and was “co- and approval sought for a joint operation at its best”, working for the consultative committee on the benefit of ordinary people on both sides production of joint promotional tourist of the border.17 literature. The representation of the border on tourism maps emerged as a Tourism and electricity generation were problem, yet a joint tourism brochure not the only areas of 1960s co- was finally completed to appear for the operation. In the area of trade a ‘side 1967 season. However, the first results document’ to the 1965 Anglo-Irish Free were described by officials in Dublin as Trade Agreement allowed cross-border “a real hash ... Northern Ireland trade to be freed at a faster pace than encroaches on Donegal! The Mountains Anglo-Irish trade, this giving recognition of Mourne are everywhere except in to a policy Lemass had begun in 1962 their proper place”. A second attempt in after lobbying by Northern Ireland 1968 was much more successful in manufacturers. In 1965 and 1967 selling Ireland to the international tourist agriculture ministers market as a single entity.15 and met to organise collaboration on food processing In the area of electricity supply, October capacity issues and countering the 1967 saw an agreement for spread of foot-and-mouth disease from interconnection between the Northern Britain. There was also some progress on Ireland Joint Electricity Authority and the the cross-border recognition of teacher Electricity Supply Board. The agreement qualifications, the use of ambulance was a ministerial one to be implemented services across the border and social by the respective generating authorities. security payments. By 1968 North-South Each was to be responsible for the line relations had settled down into the form in their area with the cost of building of occasional meetings of Prime the interconnector being divided equally Ministers, periodic meetings of 44 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

ministers, and routine meetings of harmonisation between North and officials. It was a long way from the South, particularly in agriculture, which secretive cross-border contacts that had had acquired a new relevance in the preceded the Erne or GNR talks and was context of Ireland and the UK becoming a sign of the normalisation since 1965. members of the EEC in 1973. This, importantly, marks the point at which During the first half of 1968 the an EEC/European agenda began to be construction of the electricity incorporated into that of cross-border interconnector continued, trade reform affairs. was ongoing, and tourist co-operation began to bear fruit. But from that The re-introduction of a Council of autumn, the spread of the civil rights Ireland into the landscape of cross- marches and the Stormont government’s border relations marked a major reaction to these ended normalisation. development in the structure of cross- The outbreak of the ‘Troubles’ in August border contacts and in methods for co- 1969 put the likelihood of further cross- operation. It has been seen that in the border contact into cold storage for the 1960s it was sufficient for ministers to foreseeable future. However an meet and co-operation to take place important foundation had been laid between departments. With which the ‘Troubles’ did not entirely Sunningdale, the hitherto informal inter- eradicate. departmental process of cross-border co-operation was formalised with the Sunningdale: Straws in the Wind? executive powers of the Council of Ireland. What the powers of the new In December 1973 the North’s new institution were to be was left in the power-sharing executive, and the Irish Sunningdale communiqué to some and British governments, met at future date for agreement. Sunningdale to hammer out a deal on a new Council of Ireland. The Council was In the absence of detail, the parties to to comprise 14 ministers, seven each the agreement each interpreted the from North and South, a secretariat, and remit of the Council of Ireland in a a Consultative Assembly (of 60 different manner. To unionists the members). It would “engage in work Council was to be an advisory body; to which has an immediate and obvious nationalists it was a much more benefit for the whole of Ireland”,18 substantial concept with real executive facilitating discussion on matters of powers which would lead to all-Ireland mutual concern. It was agreed to bodies ultimately being established. The commission studies to identify areas of institution of the Council of Ireland common interest in the hope of repoliticised cross-border co-operation, developing the better use of resources although, with the exception of law and and avoiding duplication. The list of order, the areas it covered remained in areas also now included the idea of essence similar to the Lemass plans of 45

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1964-65. The context, of course, was operation. By 1995 the unionist position different in 1974. Plans for cross-border seems to have included acceptance of a co-operation had now become a central North/South Council of some sort, part of any solution to the ‘Troubles’, though questions still arose whether this and would not only include the by now should be a consultative or an executive standard list of areas for co-operation, body and whether it, or a new Northern but also plans for an institution to Ireland Assembly, should decide upon oversee and implement co-operation. the areas for co-operation. So although unionists initially rejected the The 1990s: Institutions and ‘Framework Documents’ of 1995 Frameworks (which, in addition to proposing an overarching North/South body with Given the political nature of cross- executive powers, put the possibility of border co-operation from the 1970s on, North/South implementation bodies due to the introduction of the question onto the agenda), they seem to have of developing new institutions, the accepted that some North/South North-South issue was to be a key institutions would be useful so long as difficulty in the negotiations of the there were not too many, they met a 1990s. The type of all-island institutions clear functional need, and that they to be established was more problematic would be answerable to the Assembly.19 than the topics and areas for co- operation. The phrase ‘getting the In terms of the areas for North-South architecture right’ that is often co-operation, the details were usually associated with the 1998 deal meant kept away from the spotlight. In 1992 not only the governance arrangements unionists agreed to co-operation in within Northern Ireland, but also the all- areas such as transport, energy, island ones. The debate turned on the industrial development, skills/education, desire of the Irish government and SDLP agriculture and tourism.20 This agenda for what was described in the 1992 was largely unchanged from the 1960s Brooke-Mayhew talks as “an and by the 1990s contained little which institutional framework with executive could be deemed problematic. Despite functions”. Therefore the existence of a the ‘Troubles’, there had been continued North/South Council and co-operation in some of these areas, implementation bodies, the powers such as agriculture and the economy, these would have, who would create supported by EU developments. The them and to whom they would be availability, since the late 1980s, of EU answerable, became the key issues. cross-border and International Fund for Ireland funding for co-operation in the The unionist position was that a border areas had led to some joint Northern Ireland Assembly would trade, tourism, transport and energy establish an Inter-Irish Relations projects. Committee to facilitate informal co- A clearer agenda was detailed in the 46 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

misnamed ‘Mitchell Document’ (in had been on structures and, in reality a draft prepared by the British particular, chains of accountability. The and Irish Governments), which was British Government appeared happy to released to the political parties on 6 leave the running on the substance of April 1998 (four days before the Good the areas of co-operation to an Irish Friday Agreement was signed). The team led by an energetic veteran of the annexes to the document contained Sunningdale era. proposals for eleven areas for harmonising common policies, seven In the event, John Taylor’s famous areas for taking joint decisions for action quote, “I wouldn’t touch this paper with in each jurisdiction and eight areas for a forty-foot barge pole”, is the best- implementation bodies. The idea of remembered thing about this version of developing common all-island policies in a North-South agenda. A more intuitive education or ‘physical planning’, and criticism was that the two governments the concept of sectoral implementation did not trust either the proposed bodies, reveal how far the North-South North/South Council or the Northern agenda and methods of work had Ireland Assembly to shape a programme moved on since the 1960s. However the of work for the Strand Two focus of inter-governmental discussion institutions.21 According to Tom

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Hennessy, then an advisor to the Ulster North/South implementation bodies in Unionists, the crisis over the Mitchell the document, six were agreed. North- Document was resolved by agreement South work on common policies or on a ‘Plan B’ proposal from Reg agreeing joint approaches in 18 or more Empey.22 This proposed establishing a areas was reduced to six areas for North/South Council and leaving the general co-operation. details of up to six implementation bodies and six further areas of co- Despite these changes, cross-border co- operation to be negotiated between the operation as laid down in the Good Irish Government and a shadow Friday Agreement shows general Executive. These would then be formally continuity with the co-operation agenda agreed by the Assembly. The Irish of the 1960s. The twelve suggested Government and SDLP were prepared to areas for co-operation included accept this compromise on condition (a) agriculture (animal and plant health), that full agreement was reached before education (teacher qualifications and the Assembly itself went live, and (b) exchanges); transport; environment that detailed arrangements were (protection, water and waste anchored in concurrent management); inland waterways; social Westminster/ legislation security and welfare; tourism (marketing enacted before devolution. and product development); EU programmes; inland fisheries; The reaction to the ‘Mitchell Document’ aquaculture and marine matters; health shows that the North-South debate was (accident and emergency care); and focussed primarily on institutions, their urban and rural development. All of powers and authority and only these areas, with the obvious exception secondarily on the areas in which co- of EU programmes, can be found in operation should take place. The work Lemass’ 1963 plans. of the 1960s and the 1970s may have outlined some uncontroversial areas for After the Agreement the detail (in terms co-operation, though there were areas of the work programmes) for the new that could cause problems. Trade bodies or ‘areas of co-operation’ were promotion, arts and language were worked out in a series of further examples of areas which were political negotiations and problematic both in the 1960s and interdepartmental discussions. In the 1990s. Therefore despite the core of the summer of 1998 government officials, dispute over the North/South agenda North and South, began initial work on being primarily about the powers and possible new bodies and areas of co- authority of institutions, the agenda operation.23 The work consisted of captured in the ‘Mitchell Document’ was consulting with government substantially altered in the final Good departments to list possible outline work Friday Agreement. Instead of the eight programmes for the proposed new 48 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

bodies and the areas of co-operation. In could not have been implemented in the December 1998 there was agreement 1960s. by all parties on the identity of the six implementation bodies and the six areas The year 1999 saw the North-South of general ministerial co-operation. jigsaw completed. In early 1999 the Irish Government and the Northern Ireland From the ‘Mitchell Document’ the trade, Civil Service negotiated the details of inland waterways and EU programmes the remits and structures of the new bodies survived as implementation bodies, including such issues as budgets, bodies, and were joined by food safety, staffing and corporate governance. lights and loughs, and language bodies. There were also negotiations on the The first of these additions had been structure and organisation of the proposed as an area for common North/South Ministerial Council. The policies, while the second was an bodies which were given a board appear attempt to continue the work of the to have been those that unionists felt at Foyle Fisheries Commission (with an that time needed a close eye kept on expanded brief) and the Commissioners their work, notably the new Trade and of Irish Lights. The final body was Business Development Body, later to another compromise combining the Irish become InterTradeIreland. The way in language body, mentioned in the 1998 which the bodies would exercise their document, with a new agency to functions was also a matter for promote Ulster Scots language and negotiation. The possibility of the trade culture. The arts, transport and and business development body environmental protection bodies were promoting foreign trade had been all dropped. mentioned in the December 1998 deal, along with the proviso that this would The December 1998 deal also detailed only be done “when tasked jointly to do the six ‘areas of co-operation’ to be so” and the time was as yet judged not exercised by government departments right.24 For the six ‘areas of co- and other public bodies in the two operation’ department officials were jurisdictions but agreed through asked by sectoral meetings of the NSMC meetings of the North/South Ministerial to propose a list of possible projects, Council [NSMC}. These were agriculture, programmes of work, and areas to education, environment, health, tourism forge joint policies, which ministers then and transport. The tourism agreed. implementation body was dropped but resurrected in the form of a publicly A tight deadline of March 1999 was set, limited company, Tourism Ireland, to and met, for the conclusion of deal with overseas marketing of the supplementary British-Irish agreements island. The landscape was a familiar underpinning the agreed arrangements, one, though the inclusion of a body to rooted in Oireachtas and Westminster deal with language was a move which legislation. Given the difficulties over the 49

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decommissioning issue, the NSMC and continuity from the 1960s, the focus is implementation bodies did not in the now on opening the energy market to event go live until December 1999, in competition and finding alternative parallel with the Assembly and supplies of power. Agriculture, which Executive. Therefore by 2000 a full was such a key area for proposed co- agenda was agreed and working under operation in the 1960s, has shrunk due the auspices of the North/South to the role of the EU in shaping policy. Ministerial Council. The shift in agriculture raises another From the 1960s to the 1990s important factor in change: the changing nature of economic This article has emphasised how much development. Although agriculture’s of what is now the day-to-day agenda share of the economy has dramatically for North-South co-operation can be declined on both sides of the border, it traced back to the 1960s and the plans is one of the few sectors where the two commissioned by in 1963. economies have moved in step. In In a sense this is not altogether contrast, by the late 1990s the South surprising as most of the post-1945 had become the more competitive of western European states developed the two economies due in large degree along similar lines in the economic and to the impact of inward investment. social policies they adopted. Therefore These economic changes also meant there were only a finite number of areas that cross-border trade was of much less in which two neighbouring states could importance than it had been in the co-operate and the 1960s plans 1960s. Any co-operation in this area captured most of these. now has to be outward-facing in intent, as shown by the joint exhibition in While the areas for co-operation might Moscow with which this article began. not alter that much, the context in which envisaged North-South co- However, the greatest factor in operation would take place had changing the context for co-operation changed completely by the 1990s. This was the ‘Troubles’. As noted above, was due to a number of factors. Joint cross-border or North-South co- membership of the EEC and then the EU operation became a key part of any since 1973 was one important factor. solution to the ‘Troubles’. This did not The influence of membership can be make any significant difference to the seen in areas such as co-operation on content of the areas considered for co- energy and agriculture. Although energy operation, but it has affected the terms was not an agreed area of co-operation of establishing new all-island in 1998, there is a great deal of North- institutions. These are largely to provide South work going on in that area driven nationalists with an ‘Irish element’ to by EU policies. Therefore, while Northern Ireland, while unionists, electricity interconnection marks concerned about the usefulness (and 50

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sovereignty) of the new institutions, North-South co-operation takes place have demanded accountability to an than the EU. Assembly or executive in Belfast. These debates show how co-operation has Given this politicisation and connection become more politicised in the 1990s to political relationships outside their than it had been in the 1960s. control, there is an issue of whether all- island institutions should more overtly The hope for those who work in the seek to reconcile North and South. North-South area is that co-operation However much of the content of co- will become less political as time goes operation remains economic and on. Champions of co-operation often technocratic in focus. The Good Friday stress the need for any initiative to be Agreement proposed the option of a tested for its mutual benefit to the two North/South Consultative Forum to jurisdictions. A recent study by the two bring together community and other governments on economic co-operation leaders from both sides of the border, has gone further. In it two tests are though this has yet to happen. Even in outlined against which to check any 2002, when proposals for further co- new cross-border project. In the first operation were drafted by officials for place it should be for the public good or the NSMC, only education and youth address a ‘market failure’. Secondly, the exchanges had a specific reconciliation root of this ‘market failure’ or barrier element.26 This would have been to providing services must be the understandable in the 1960s but, 40 border itself.25 years on and in the changed context described above, there is surely room for As well as tests for mutual benefit, reconciliation to be at the centre of any those hoping to depoliticise co- future North-South agenda. operation are probably tempted to think of the new North-South institutions as Dr Michael Kennedy is Executive being part of a wider drift to Editor of the 's transnational or multi-level institutions 'Documents on Irish Foreign Policy' within the EU. However it is as series. He has published widely on important to understand the peculiarly modern Irish history, including Irish development of cross-border Division and Consensus: The politics institutions from the failed 1920s of cross-border relations in Ireland Council of Ireland, through the 1925-1969 and Obligations and avoidance of institutions in the 1960s to Responsibilities (co-edited with Dr the drift back to institutions since the Deirdre McMahon), a volume of 1970s. The ups and downs of British- essays marking 50 years of Ireland's Irish, North-South and nationalist- membership of the United Nations. unionist relations have surely had much He is an adjunct Associate Professor more of an impact on the institutions, of History at University their remits and the areas in which College Dublin. 51 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

1965. Dr Eoin Magennis co-wrote this 13. NAI DFA P363, notes on meeting, 9 article while Research and February 1965. Information Officer with the Centre 14. Irish Press, 10 February 1965. for Cross Border Studies. He is now 15. NAI DFA 98/3/35, 24 April 1967. Policy Research Manager with 16. The Department of External Affairs InterTradeIreland. was anxious that the agreement be at ministerial level as an agreement at governmental level would in ENDNOTES effect acknowledge that the Northern Irish government held the 1. The authors wish to acknowledge same status as the Irish government. the advice and information provided 17. , 5 October 1967. by current and former government 18. NAI 2005/7/624, conference brief officials, North and South. for Liam Cosgrave for meeting with 2. Fish Matters, No. 36 (2005), p.7. British Prime Minister Edward 3. Public Record Office of Northern Health, January 1974. Ireland (PRONI) CAB/4/1292, 16 19. See Hennessey, pp.127-8. February 1965. 20. Details from Tom Hennessey, The 4. Irish News, 11 August 1965. Northern Ireland Peace Process 5. National Archives of Ireland (NAI) DT (Dublin, 2000), pp.62-4. S16272E/63, 56-point list of areas 21. Gary McMichael made the second drawn up by Department of the point; see ‘UUP reject North/South Taoiseach, September 1963. proposals’, , 8 April 6. NAI DT S16272F/95, Lemass to 1998. Colley, 22 April 1964. 22. Empey memo to , 5 7. NAI DFA Secretaries Files P363, April 1998 cited in Hennessey, Whitaker to Malley, 5 January 1965. p.166. 8. A full account can be found in 23. This work seems to have devolved Michael Kennedy, Division and onto officials from the Department Consensus. The politics of cross- of Foreign Affairs and the Office of border relations: 1925-1969 (Dublin, the First Minister and Deputy First 2000). Minister. The Department of 9. NAI DFA Secretaries Files P363, Taoiseach, Northern Ireland Office ‘Taoiseach’s visit to Belfast - and the two Finance Departments Thursday, 15 January 1965’. were also involved in a supporting 10. Ibid. role. In the 1960s the Department 11. PRONI CAB/9U/5/1, Barrie - of the Taoiseach and Dept of Bateman, 21 January 1965. Finance had been the driving force 12. NAI DT S16272H, communiqué in developing co-operation, with issued after the meeting, 9 February Whitaker at Finance involved in a 52 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

personal manner as a key directing higher and further education; force. In Belfast the Prime Minister’s agriculture (organics, training and Office and the Ministry of Finance forestry); Irish medium education set the pace in the 1960s, with (supply of teachers and special Faulkner in Commerce playing an educational needs); education and important supporting role, though youth exchanges; mutual often following his own agenda. recognition of qualifications; 24. Joint statement by David Trimble consumer interests; health (mental and , 18 December health) and strategic investment in 1998, Annex 2. infrastructure. 25. British-Irish InterGovernmental Conference, Comprehensive Study on the Island Economy (2006), p.14. 26. Nine areas were agreed for future co-operation including: energy;

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PARTNERSHIP IN CROSS-BORDER DEVELOPMENT: SYMBOLIC STRUCTURE AND WORKING PROCESS

Caitriona Mullan

At this time in the history of this island, the significance of the words ‘partnership’, ‘cross-border co-operation’ and ‘north-south co-operation’ is high. We are in a situation where inter-jurisdictional co-operation is no longer just an optional issue between the two Irish jurisdictions. The Caitriona Mullan imperatives for co-operation across borders no longer come exclusively from party political or ideological positions in an Irish or British context. The concept of cross-border co-operation is not unique to this island. Governments are, by virtue of Irish and UK membership of the European Union, under an obligation to implement certain EU policies in this area.

Crucially, the EU’s all-important Lisbon Within these broad parameters, the role Agenda, while essentially about of cross-border co-operation is competitiveness, also points to a new highlighted by the Draft EU Territorial and inclusive of governance and Agenda, due to be adopted by the EU interaction with citizens: at Leipzig in May 2007:

The Lisbon partnership requires a long- The aim is to strengthen the global term communication strategy that not competitiveness of all regions of Europe. only keeps our citizens informed, but In the light of the Lisbon and engages them in the process. The main Gothenburg [sustainable development] thrust of our communication efforts Agendas, the diverse territorial must be at national, regional and local potentials for sustainable economic levels. This is why there must be close growth and job creation in Europe must and continual coordination with national be identified and mobilised and the governments, parliaments, regions, cities constraints removed or mitigated. This and civil society. This will provide the also means that attention has to be paid democratic legitimisation of the strategy especially to the lagging and peripheral itself and the basis for it to succeed1. areas of the EU. In addition the 54 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

obstructive effects of borders on the optimal utilization of territorial potentials must be mitigated by more intensive cross-border and transnational co-operation.2

Such EU-generated imperatives for increased cross-border co-operation add to the logic of getting it right in an Ireland/Northern Ireland context. All these EU statements make the issue of Damien and Majella O’Keefe, Green Box accommodation providers, with their EU Flower ecotourism award. good practice in partnership and collaborative working, particularly definition of good partnership at local and regional cross border level practice as: (complementing inter-governmental co-operation), highly topical. The demonstration by an organisation and its staff or representatives of a As a practitioner of cross-border commitment and capacity to engage in development, cross-sectoral working genuinely collaborative intra-sectoral and EU funding management in a rural and cross-sectoral decision-making and and historically deprived border region, practices in order to attain common I have a particular interest in the goals in the pursuit of better services implementation of such policies. and quality of life for citizens. A policy is only as good as its implementation. Partnership is an This definition can apply at local important issue as we try to create community, county or regional level. In cross-border collaboration processes the Irish border region, it tends which allow for the achievement of increasingly to be at cross-border level maximum economic and social benefits also. A prerequisite for cross-border and for local communities. From experience, cross-sectoral co-operation is the I also know that the phrase ‘partnership existence of such networks to co-exist is important’ can mean just about alongside intra-sectoral collaborative anything one wants it to mean. capacity. Cross-border co-operation should not be separated from an The first obstacle to making clear and organisation’s capacity for partnership useful observations on partnership in a working in general. cross-border context is how to define the term. I have chosen, as a Two further definitions are necessary. practitioner, to provide a working Based on observation and experience, 55

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I have chosen to draw a key distinction led by five Republic of Ireland county between partnership as symbolic councils – Donegal, Sligo, Leitrim, structure and partnership as working Cavan and Monaghan – and five process. In local and cross-border Northern Ireland local authorities – development terms, partnership as Ferrmanagh, Armagh, Omagh, symbolic structure refers to the Cookstown and Dungannon and South establishment of formalised institutional Tyrone. Since 2001 it has been involved structures, where the makeup of a in the implementation of elements of board or committee symbolises the the EU INTERREG IIIa cross-border range of stakeholders for whom the programme. partnership is relevant. Partnership as symbolic structure does not Under the INTERREG IIIa programme, a automatically imply the existence of number of existing partnerships sought actual day-to-day practical collaboration and successfully obtained EU funding to between such stakeholders. further their collaborative activities. One of these was the Green Box, an Partnership as working process refers to example of both a good symbolic a work methodology, used particularly partnership and, through the work of its by cross-border development workers, staff, partnership as a working process. which involves practical collaboration This purpose-built partnership originated with stakeholders outside one’s own with the state-sponsored Western organisation or department. Of course Development Commission in the the two concepts are not mutually Republic of Ireland, which was set up in exclusive and it could be argued that 1999 to promote the six Connacht they lie at different points along a counties and Donegal. The INTERREG- continuum of practice. However it is funded Green Box aims to develop the useful to draw the distinction between rural areas of Fermanagh, Leitrim, west the two, as it illustrates that the phrase Cavan, north Sligo, south Donegal and ‘we’re taking the partnership approach’ north-west Monaghan as a destination can mean at least two different things. for ecotourism (sometimes also called ‘sustainable tourism’). The original Before identifying potential obstacles to Green Box Memorandum of Association successful cross-border partnership set out to: working, I have chosen several examples of good practice according to the Promote the adoption of a coherent and definition of good partnership practice co-ordinated approach between the set out above. These are drawn from responsible public authorities and other the Irish central border region running interested parties to tourism product from Donegal to Armagh, which can development and marketing in the also be referred to the ICBAN region. Green Box Area; to ensure that each of ICBAN or the Irish Central Border Area the public and other bodies working at Network is a cross-border organisation local, county and regional level are 56

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actively working together to an agreed Ecotourism requires the development of agenda and a common set of goals in a tourist product which both meets relation to tourism dispersal in the certain standards and is integrated with Green Box Area; to develop a collective the local rural economy – clearly this approach to key strategic issues for requires community linkages. Thus a tourism development such as access to collaborative approach by local the regions, environmental sustainability, authorities, regional tourism support human resource development and agencies and other local economic and related matters.3 community rural development stakeholders was born in the interests of These clearly-stated aims provide clues developing a new type of cross-border to the range of stakeholders involved in tourism. The Green Box is the island’s the management and implementation of first integrated destination for its activities. The Green Box idea grew sustainable tourism. It will form one of out of the Western Development the lynchpins of the current Commission’s identification of development of a cross-border spatial ecotourism as a source of regional planning framework for ICBAN as a economic growth. In the rural areas region of renewables and sustainability covered by the Green Box, the tourism stretching from Mid Ulster to North product is generated by small, Connacht4. The interim evaluation of the independent providers – those with Green Box project stated in April 2006: automatically less strength and access to decision makers and public marketing This is a unique product which has resources. effectively piloted Green Tourism in Ireland at a relatively modest Ecotourism demands specialist cost….there is a freshness to the involvement from the environmental product and there will be unique quality sector such as renewable energy indicators when assessments are instalment expertise. It requires completed.5 networking of all product providers: restauranteurs, leisure activity Since the interim evaluation, the Green companies, accommodation providers. It Box has adopted the EU Flower, a requires an understanding of the new European Quality Mark for ecotourism, international markets for tourism which and progress is being made towards are not about big coach tours and helping providers to achieve this quality predetermined hotel chain mark for their own establishments, thus accommodation. The dispersed nature opening up greater marketing of the Green Box region means that opportunities with more visitors and local authorities have a key role to play subsequent benefits to local in adding value and taking the communities. It would appear that the ecotourism theme into their tourism collaborative multi-stakeholder structure promotion campaigns. of the Green Box has been effective in 58

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this particularly innovative and policy- skills offered included skills in hospitality relevant area. management, Information and Communications Technology, organic Another example of good partnership food production, conservational practice is the Blackwater Regional construction, rural leisure activities, and Partnership. This originated in the traditional crafts such as weaving and Blackwater Catchment Scheme master carpentry. developed in 1994 around the cross- border River Blackwater basin by In order to get a broad range of training Dungannon and South Tyrone Borough (and to source the right type of Council, Armagh City and District training), the Blackwater Partnership Council, and Monaghan County sought additional working partnerships. Council. In 2003 the partners obtained These included a cross-border link-up INTERREG IIIa funding for the between Ballyhaise Agricultural College Blackwater Reskilling Programme, which (Co. Cavan) and the College of aimed to provide training and reskilling Agriculture, Food and Rural Enterprise through joint work between the region’s (CAFRE) at Loughry (Co. Tyrone) to colleges of education and other training develop organic food production providers. As such, the Blackwater courses; cross-border links between Regional Partnership is a local further education colleges and other government sector example of good training providers to put on courses in practice in both symbolic partnership hospitality, technology, rural leisure and partnership as working process – activities and vocational skills courses; the latter by virtue of the activities and additional partnership which the Blackwater Regional arrangements between further Partnership has chosen to pursue. education colleges, the Conservation Volunteers (NI), other training providers This area has a high level of built and Mourne Heritage Trust to establish heritage and is therefore well placed to cross border courses on conservation develop heritage tourism and spin-off construction, and environmental rural economic development awareness and skills training.6 opportunities. The challenges experienced by the area relate to Again, the cross-border structure of the fractured communities as a result of Blackwater Regional Partnership, and road closures during the Northern the setting up of other working groups Ireland conflict; trauma and to carry out specific collaborative bereavement linked to that conflict in activities, have been the keys to success. communities throughout the Blackwater The interim evaluation of the INTERREG- region, and a poor national and funded Blackwater project states: international image of the area leading to low self-confidence. The training and The project is well received by all 59 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

stakeholders, is viewed as a necessary structures for any cross-border initiative provision by funders and is well involving collaboration with external attended by participants. These facts partners. In ICBAN, for example, we highlight the positive impact which the work with our internal stakeholders project has had at a micro and macro (local councils) and external partners. level… The project can be seen to have The latter include county community in its structure, design and content a forums, farmers’ groups, enterprise number of key features which can be support agencies, colleges such as mapped across other areas in terms of Omagh College and Sligo Institute of its approach and structure, though Technology, and state agencies such as content would obviously need to be the Loughs Agency, Northern Ireland customised to the needs of any specific Tourist Board, Failte Ireland and Údarás geographic region.7 na Gaeltachta. Beyond these lie other external actors: other local government This clearly highlights the transferability organisations, central government of the Blackwater model, an important departments, community and voluntary issue in any debate on good practice in sector organisations and so on. It is partnership working. There is often well- often difficult to predict obstacles advised caution among practitioners thrown up by this external environment, when the phrase ‘transferable model’ is but one key element of good practice used. However it is still possible to distill should be to build trust between the elements of good practice for the partners so that at least the internal purposes of providing guidance to environment springs as few nasty communities, groups and organisations surprises as possible. on how to go about establishing effective cross-border partnerships Another effective cross-border which achieve tangible results. For local partnership between the community government at subregional level, the sector and the further education sector Blackwater Regional Partnership is a key was the project entitled ‘Rural Men’, example of a symbolic structure which driven and initiated by the Leitrim has developed the necessary capacity Men’s Group from 2003 to late 2006. and relationships to achieve its goals. Funded through INTERREG IIIa8, this aimed to provide skills training to men One key lesson can be drawn from experiencing social and economic these two examples of cross-border exclusion in Leitrim and Fermanagh. The partnership working: a crucial Leitrim Men’s Group was originally set consideration in any cross-sectoral or up to meet the needs of men in North cross-disciplinary structure is that form Leitrim who lived in increasing isolation should always be driven by function or in rural areas. The men supported by aim. An awareness of longer-term the group often lived alone or as carers strategic objectives as well as shorter- to elderly parents, had low incomes, term practical outputs should inform the often had low levels of educational 60 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

attainment and had been disadvantaged there are particular cultural barriers to by policy changes in the 1990s in men seeking help in this way. Negative agricultural policy, making off-farm skills experiences of school education added development and diversification of to the disincentives for many men in the income the only option for many. This group to pursue re-skilling and training project relied heavily on partnership as to improve their income generation and working process in order to achieve its quality of life. They also had occasional goals. Beyond a partnership mental health and addiction problems. arrangement with Fermanagh College The group served as a bridge between for the purposes of obtaining funding these men and the services they needed. for training, the key partnership feature It sought a partnership arrangement of this project was the way in which with Fermanagh College of Further personnel of the Leitrim Men’s Group Education and successfully obtained worked with countless agencies to funding to allow each participant to advance the issue of joined-up support access training and other supports via a to the men they serve9. personal learning plan. The project greatly exceeded its target of 60 The Leitrim Men’s Group recognised that participants in training and finally JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

delivered 18 different courses to 115 Social Inclusion Working Group. This participants. The project’s final group of many partners includes evaluation report praised the project representation from ICBAN member model and recommended strategies for councils (with particular involvement future sustainability.10 from Cavan County Council), Donegal County Development Board, Sperrin The Leitrim Men’s Group also conducted Lakeland Trust, Leitrim County Council, a piece of research – also funded the Co-operation and Working Together through INTERREG – which identified (CAWT) network of health boards and that the type of man served by the trusts12, Ulster Community Investment Men’s Group had needs which Trust (UCIT), and Leitrim Men’s Group. A demanded an integrated service delivery spin-off activity on the Northern Ireland approach from providers of state side, in the context of wider work on employment, social benefits, training, men, health and well-being in the health and education services in both ICBAN region, is that Sperrin Lakeland jurisdictions. Funding for training Trust is currently developing a allowances was also required. community health partnership network Consultation with the relevant state to allow health services to engage better agencies indicated that while many with communities on similar issues. This agency workers were aware of the has occurred as a result of a part-time needs of these men, they had no formal secondment from Sperrin Lakeland Trust remit to communicate or collaborate to ICBAN for the purpose of developing with other agencies in order to provide new approaches to support men living them with a more effective support in social exclusion in the ICBAN region. network. The research, entitled ‘Men on The ICBAN Social Inclusion group’s the Border’, was published in 2006 and position paper will contain practical was launched by the Leitrim County recommendations for further Manager in the Manorhamilton collaborative working between agencies Headquarters of the North West Region and community support organisations to Health Services Executive (HSE).11 address the exclusion and poverty Agencies ranging from health services experienced by men like those who to housing providers in both jurisdictions came into contact with the Leitrim were represented at the launch, and Men’s group. promised to work more closely with one another to ensure that such The work of the Leitrim Men’s Group is marginalised men did not continue to an example of partnership as a working fall through the gaps in administrative process. The new processes which have and service provision processes. come out of the group’s work demonstrate the effectiveness and One result of this is that a cross-border multiplier effect of engaging with other position paper is currently being organisations on a basis defined by prepared by the ICBAN Cross-Border commitment to a common set of goals. 62 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

Both symbolic partnership structures (as Similarly, if the refurbishment of the in the Blackwater Regional Partnership) Ulster Canal were to be prioritised by and partnership-based work processes both governments as a major cross- (as in the work of the Leitrim Men’s border capital infrastructure project, Group) are highly relevant in the context there is a strong argument for the of North-South and cross-border establishment of an inter-agency and collaboration. For example, the cross-border steering group to oversee government-endorsed approach to the its implementation. This would enable development of an all-island economy co-ordination between the based on spatial development demands infrastructural and developmental such collaborative processes. aspects of this symbolic North-South arterial waterway, and would also allow The future well-being of the Irish border individual agencies to work within a co- region will require the adoption not only ordinated environment of collaboration of a commitment in principle to such and inter-agency communication. Such a collaborative processes, but also a structure would also allow for the demonstrable commitment to them in integration of local economic practice from all sectors: public, private development strategies and measures and community/voluntary. Another within the community and private example of the effectiveness of such sectors to ensure that the full potential cross-border, cross-sectoral working is in of a re-opened Ulster Canal is realised. the potential for small farmers in the In such ways partnership working can region to increase their production of be used to maximise value for public fuel crops (such as oilseed rape for money, while ensuring effective project biodiesel, or willow for wood-pellet management and appropriate domestic heating systems). Such a stakeholder involvement. diversification will require both symbolic partnership arrangements and working There are, however, some potentially collaboration processes between hazardous obstacles to partnership and stakeholders like the Department of collaborative working in a cross-border Agriculture and Rural Development (NI); and North-South context in Ireland. The the Department of Agriculture and Food first is if decision makers fail to (RoI); Teagasc; the farmers unions in recognise that there are different both jurisdictions; the Departments of histories of social partnership – and the Social Development (NI) and Social and state’s relationship to it – in Northern Family Affairs(RoI); the two Departments Ireland and the Republic of Ireland. of the Environment; the planning While a formal social partnership services north and south; the process has existed in the Republic of engineering industry on both sides of Ireland since 1987 and has been the border; and local authorities and underpinned since then by the adoption enterprise development agencies in both of partnership-based working jurisdictions. methodologies throughout the public 63

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sector, there is no similar statutory Health Partnerships – have not been commitment to the social partnership constituted independently and as such model in Northern Ireland. Where local are owned by Health Trusts and their inter-agency collaboration is demanded funding is subject to Health Trust policy. under the National Development Plan In the current climate of waiting for the in the Republic of Ireland via state- implementation of the Reform of Public sponsored County Development Boards Administration, this can mean that (themselves partnerships of local partnership arrangements are put on authorities, local development bodies, hold while public sector organisations state agencies and the social partners)13, wait for change rather than preparing the Local Strategy Partnerships in for it. This has led to some Northern Ireland have not enjoyed the disillusionment within the community same strategic remit. Equally, the sector as to the value of partnership success of the County Development arrangements with statutory Boards in achieving more complex goals organisations. These distinctions in is entirely dependent on the existence of interpretation (and experience) of partnership as working process between partnership are relevant in terms of agencies at county and city level. cross-border development because they can determine how organisations There are also differences not only behave when interacting with others. between central and local government interpretations of partnership in A second potential obstacle to the Northern Ireland and in the Republic of evolution of effective cross-border Ireland, but also between the partnership structures is the variety of community and voluntary sectors in opinion in central and local government both jurisdictions. For example, in the circles about the use and value of Republic of Ireland the State has actively partnership. One example from the local resourced local community development government sector is the current functions through inter-sectoral discussion taking place about the partnerships (informally known as ‘ADM emphasis on the role of local Partnerships’ after the agency which government in co-operation across the oversaw their establishment) which are Irish border under the EU’s 2007-2013 independent legal entities. This has Territorial Co-operation Programme, and produced a number of highly innovative what this emphasis actually means. One local partnerships such as Tallaght interpretation is that the cross-border Partnership and Dublin Inner City INTERREG groups like ICBAN – which Partnership. are currently representative of both local authorities and the social partners – On the other hand, in Northern Ireland should in the future have no significant one of the most productive examples of role in brokering collaborative collaboration between the statutory and arrangements with the social partners. the community sector – the Investing for An alternative interpretation is that local 64 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

government should be leading the way In summary, this article has attempted in developing such partnerships, to place regional cross-border co- because this is the best method to operation in Ireland in the context of EU improve joined-up services and cross-border imperatives aimed at otherwise enhance the lives of people in achieving greater economic the border region. Those holding to the competitiveness and social and territorial second interpretation believe that this cohesion. It has cited two examples of role is increasingly important for local good practice in symbolic cross-border government along the border in the partnership structures which also face of the imminent large-scale involved partnership as working process, changes and new functions for local and one example of an initiative which government in the context of the led to the engagement of numerous Review of Public Administration (RPA) in stakeholders in collaborative working Northern Ireland, and the ongoing processes to help an isolated and development of the Better Local disadvantaged group, without the Government process in the South. establishment of formal symbolic partnership structures. Finally, it The third potential obstacle to the suggested that benefits from this kind establishment of effective cross-border of work in the border region will only partnership structures is that they will occur if the importance of partnership not work unless there is investment in as cross-border working process is the human capital required to recognised and resourced with funding implement them. A key factor in the and trained, experienced people. If it is successful attainment of cross-border so resourced, multi-level working co-operation objectives is the quality partnerships across the Irish border, and capacity of the personnel involved backed by appropriate symbolic in implementing them. Such people’s structures, can lead to multiple benefits learned skills are crucial to their success. for communities, the economy, the Disillusionment – inadvertent or public sector, and future civic otherwise – of stakeholders can be engagement on the island. easily caused by the actions of one member of staff of an organisation. Caitriona Mullan is Programme Providing the time, space and resources Manager for Strategic Development, for the training and professional Irish Central Border Area Network development of key employees will be (ICBAN) necessary to complete the circle. Failure to plan for the establishment and training of a workforce capable of engaging in partnership-based working could heavily limit the impact of effective cross-border co-operation. 65 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

ENDNOTES As a model this is relevant to many other groups apart from men in 1. Commission of the European rural areas, and as such should be of Communities, Communication from wide interest to social and the Commission to the Council and community service providers. the European Parliament – Common 10. First Western Consulting, Interim Actions for Growth and Evaluation Report of the Employment: The Community Lisbon Fermanagh/Leitrim Rural Men Programme – COM(2005)330, Project (2005), p.49. Brussels (July 2005), p.2. 11. Leitrim Men’s Group, Men on the 2. Commission of the European Border (2006). Communities, Territorial Agenda of 12. Co-operation and Working Together the European Union- Towards a (CAWT) is a cross-border partnership More Competitive Europe of Diverse of health service authorities in the Regions, (October 2006), p. 3. border regions of Northern Ireland 3. TTC International, Evaluation of the and the Republic of Ireland. Greenbox Sustainable Tourism 13. County and City Development Project (2006); p.6. Boards in the Republic of Ireland are 4. Work currently in progress by the representative of local government, ICBAN Cross-Border Spatial Planning local development bodies (area Group; contact [email protected] partnerships, LEADER groups and for further details. County and City Enterprise Boards) 5. TTC International, Evaluation of the and the state agencies and social Greenbox Sustainable Tourism partners operating locally. The CDBs Project, (2006), p. 42. draw up and oversee the 6. McClure Watters, Interim Evaluation implementation of a strategy for of the Blackwater Skills Programme economic, social and cultural (2006), p.2. development for each county or city 7. Ibid; Page 36 area, which is the template guiding 8. Project funded by ICBAN under all public services and local Interreg IIIa Programme Priority 1- development activities locally. Integrated Local Development Strategies; Measure 3- Human Resource Development and Skilling. 9. The Leitrim Men’s Group published a report in August 2006, Men on the Border, which provides a clear demonstration of the need for partnership working between agencies involved in providing supports to socially excluded men. 66

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LEARNING FROM THE IRISH BORDER: REFLECTIONS ON POLAND AND THE UKRAINE

John Bradley

I can date very precisely when the North-South border entered into my professional life and became an integral part of my work as an economist. In late 1989 I was asked by the then Chairman of AIB, Peter Sutherland, to address the members of his board during a weekend retreat held in Dromoland Castle. My topic, the medium-term prospects of the Irish economy, was based on the pioneering John Bradley research that the Economic and Social Research Institute (ESRI) had been carrying out during the 1980s, in the era of recession prior to the arrival of the . Just before my address, I noticed – to my surprise - that many members of the AIB board were from Northern Ireland. So I started my presentation by apologising to these people for not being able to say anything about the economy of Northern Ireland. I added that there was nobody in the ESRI (at that time) working on Northern Ireland, on cross-border questions, or collaborating with Northern researchers. The sad fact was that while the UK as a whole was firmly on the ESRI research radar screen, Northern Ireland was not.

Immediately after my presentation, I was indifference which then characterised approached by John McGuckian, who our divided island community of was also Chairman of the International economists. I followed this advice, and Fund for Ireland. He explained that the the subsequent three-year IFI-supported IFI had a policy of supporting ‘real’ project served to launch a decade of cross-community and cross-border close involvement in North-South projects rather than academic or policy economic research that ended up having research. But he suggested that I should a profound impact on my subsequent try to seek out a partner institute in the interests and career.1 North, and consider submitting a proposal for joint work that might start Perhaps, with the benefit of hindsight, I to break down the North-South should have realised that the emergence 68

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of more trusting and sustained North- led to much deeper European South Irish research relationships from a engagements than I would ever have permafrost of almost 70 years of been able to predict at that time.2 In the general indifference was never going to late 1980s the significance of our own be simple or easy. It took me some time internal island border was gradually to accept that North-South economic changing and the practical examination policy discourse might sometimes be of future possibilities was beginning to better kept at a well-intentioned, attract the attention of and to be anodyne level, and usually needed to be treated seriously by policy makers and treated with extreme circumspection. I strategists in the public and private had to learn the hard way that any sectors. Churchill’s speech at Fulton, attempt to explore deeper into the past, Missouri, in 1947 had characterised the present, and possible future inner division of post-war Europe memorably workings and inter-relationships of both in terms of an ‘iron curtain’. In 1991 regions, prior to the natural emergence George Quigley and Liam Connellan first of common business and economic articulated the galvanising concept of interests, risked generating friction and the ‘island economy’. Coming to terms opposition. At best, examination of the with this concept after several possible synergies arising from enhanced generations of effective separation cross-border economic activities might presented a radical challenge to deeply run the risk of being regarded as entrenched attitudes. unwelcome, unnecessary and unhelpful interference. At worst, it could be But the far bigger European border – rejected, and seen as potentially hostile the ‘iron curtain’ that extended from and threatening, striking at the heart of Stettin in the north to Trieste in the valued but separate regional identities. south – was also about to change Unlike my previous experience in the dramatically. With the collapse of very active field of international research Communism and the liberalisation of within the EU (involving widespread the former COMECON zone, the ‘iron collaboration with institutes across the curtain’ fractured into many smaller, countries of the then twelve-member more permeable borders. Almost by European Community), North-South accident, the orientation, skills and research was not always assumed by experience that I had acquired in the both sides to be uncontentious and study of our own North-South border, politically neutral. and how it could affect progress towards cohesion, integration and Wider European developments prosperity, were exactly those needed to address the wider European issues Looking back at 1989 from the arising from the legacy of Communism, perspective of seventeen years of and the reintegration of the vulnerable, hindsight, my initiation into the study of damaged societies and economies of the economic consequences of borders Central, Eastern and South-Eastern 69

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Europe into an enlarged European economy, and this characteristic Union. encouraged and facilitated the study of regional policy formulation within a The Republic of Ireland, of course, is large nation state like the UK, in a way such a small and centralised state that that would not have been feasible its regions are not in any way separate within the much smaller and more or devolved from the nation state, in the tightly integrated Republic of Ireland. way that Scotland, Wales and Northern Ireland are within the UK. To us Second, Northern Ireland had enjoyed economists in the ESRI, what the study some scope for distinctive regional of the Republic of Ireland during the policy-making, so this permitted one to 1980s and 1990s demonstrated and examine the extent to which local policy illuminated was how policy makers in a initiatives might be designed and small, open, underdeveloped economy implemented to offset any specifically could move in a determined way to regional disadvantages (such as integrate into the emerging EU Single Northern Ireland’s industrial decline and Market and make use of the Irish-EU peripherality). These two aspects link to its developmental advantage.3 became very relevant when I During the 1990s Irish economic subsequently came to work with Polish progress and success attracted colleagues as they addressed the widespread attention from the queue of challenges of developing their 16 applicants for EU membership as they heterogeneous voivodships (or regions) tried to rebuild their shattered that ranged from the relatively economies. During my early years of prosperous West, which shared borders working in the newly liberalised post- with Germany, to the five poor eastern Communist states, I was often amused regions that were unfortunate to border to note that there was usually on the much less developed Russia considerably greater familiarity with the (Kaliningrad), Belarus and the Ukraine. Republic of Ireland’s modern development strategies than I had ever A third interesting characteristic of our found in Belfast during the early 1990s! island was that the North-South land border separated the island economy Far from being narrow and inward into two distinct policy regimes: one, a looking, North-South research in Ireland sovereign state with considerable scope had the potential to open up a for local initiatives; the other a region of cornucopia of additional interesting a sovereign state, where policy planning political-economic and social was dominated by the metropolitan configurations of great relevance to the concerns of the much larger British reconstruction and renewal of post- economy. Such asymmetries were very Communist Europe. Three examples are common throughout Europe, and the particularly striking. First, Northern consequential development challenges Ireland was peripheral within the UK of vital importance. So from the 70 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

perspective of economic policy research borders exist, of course. Some have methodology, far from being dull and been dramatic frontiers, separating the provincial, this island was an exciting forces of darkness from the forces of test-bed or microcosm of post-1989 light, like the terrifying military watch Europe. One just had to learn to look at towers that I observed in the 1970s on it in a different and more creative way. the border between Austria and Hungary, or the crude, ugly and We economists have always tended to inhuman Berlin Wall. But as the EU was think of borders in an excessively narrow enlarged and progressively integrated way as simple lines on a map, dividing into a single market, national borders the world into separate national ceased to be the harassing and economies, each with its own local disruptive tax-gathering points of past blend of fiscal, monetary and other history, and many have faded in policies. History only enters into our significance. Indeed, within the calculations in an extremely attenuated Schengen area, EU citizens now enjoy way. What North-South research the kind of freedom of movement that gradually taught me was that the we Irish have long enjoyed within these concept of a ‘border’ is much more islands since the Government of Ireland complex and multidimensional. National Act of 1920.

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A Europe of borders utterly dependent on external financial subvention.5 The fragile political and economic geography of Ireland was crudely What was particularly interesting about redrawn in 1922, leaving a long-tailed, East Germany was that although there bitter legacy whose nervous endgame is were no longer any physical borders at last playing out peacefully before our between it and the former West eyes. Our exposure to such Germany by the mid-1990s, yet the consequences in Ireland ought to have miasma of the previous East-West divide made us more sensitive to the massive seemed to linger on in the air. The and more horrific border changes that legacy of over 50 years of the German convulsed eastern Europe in the period Democratic Republic had left a from the Treaty of Versailles to the subliminal border, whose debilitating demise of the Soviet Union and the effects are likely to endure for many former Yugoslavia. But the strength and years after re-unification. The regions of the immediacy of local grievances have the former Yugoslavia suffered from a way of shutting out the woes of the similar development challenges, and rest of the world. In turning inwards, unravelling the social ownership system we lost a wider European perspective has proved even more difficult and long that might have given us much food drawn out than the dismantling of for thought. centralised state planning of the former Soviet system. My first serious involvement with Eastern Europe started in the mid-1990s As the traditional industries of Northern in East Germany, by then part of a re- Ireland contracted during the last three united Germany, and having all the decades, a process that accelerated in characteristics of a post-Communist the 1990s, the social and economic transition economy. In a nice example of costs to the local economy were heavy. serendipity, I was able to build my East But at least there were mechanisms German research on previous economic available that facilitated the modelling work that I had carried out redeployment of resources and assets to on Northern Ireland.4 It was remarkable more productive uses, and a benign how similar the economies of East state ready to assist the transformation Germany and Northern Ireland were: process with generous subventions and both regions had large remnants of other aid. I reflected on this in 2004, as decaying heavy industries, left over from I stood in the ruins of the massive a previous, successful era; they both had Trebsca lead smelter in the Kosovan excessively large public sectors, as a town of Mitrovica, listening to its substitute for a weak private sector; UNMIK-appointed German manager they both experienced internal and describe the glacial pace of reform and external difficulties in bringing about restructuring, made even more difficult structural change; and they were both by the fact that Mitrovica was situated 72

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on the internal peace line that separates until 1945, Wroclaw had been a the predominantly Albanian and Serbian German city, and only became Polish areas of Kosovo. when the borders of that country were forcibly pushed 200 kilometres west as The inevitable economic collapse of the part of the post-war settlement. Balkan states was greatly exacerbated by vicious ethnic conflict. International aid Poland and the Ukraine was forthcoming after these ethnic conflicts ended, but tended to dry up as The land that Poland had gained in the post-war basic reconstruction (mainly of west was offset by losses in the east, as destroyed homes and villages) was the Polish-USSR border also shifted. This completed. For the Western Balkans, part of pre-war Poland – centred on the there was no rich and benign state city of Lviv (Lvov in Russian) - now standing by to plough massive funding became western Ukraine (a constituent into their ruined economies to foster republic of the USSR), and suffered social and economic development.6 massive population displacements. Many Such financial support had been readily of the expelled ethnic Poles were sent to available for Northern Ireland and for the new western regions of post-1945 East Germany, but did not, of course, Poland, which had previously been necessarily solve all development German territory.7 problems. As one examines the relationship In recent years my work has frequently between Poland and the Ukraine, some taken me to Poland, where one quickly striking parallels with the relationships becomes very conscious of the between Ireland, Northern Ireland and dislocations caused by its turbulent Great Britain emerge. The term Ukraine history. On my first visit to Wroclaw in can be translated as ‘at the border’ or 2002, my Polish colleague, who had ‘borderland,’ and came into general been a Solidarity-appointed Voivod (or usage in the 16th century, at a time Governor) of the Dolnoslaskie region, when the Polish-Lithuanian took me on a tour of his beautiful city. confederation (at that time the In one sector, which looked more strongest power in the area) and the ‘ordinary’ than the historical centre, he rising principality centred on Moscow told me that when the Soviet army had were vying for control of the vast area laid siege to Wroclaw in late 1944, the south of their borders. Germans had bulldozed buildings in that sector of the city and attempted to build Even a very modest familiarity with the an aircraft landing strip in order to fly in complex history of Polish engagement supplies. My initial reaction was one of with the Ukraine would have led one to anger that yet another Polish city should conclude that modern Polish-Ukrainian be so mutilated by the occupying relations might be tetchy, fractious and German army. Then I remembered that, difficult, perhaps along the lines of our 73

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Irish pattern of behaviour. Yet during the opportunity to visit the western part of civic convulsions and protests that broke the Ukraine, in the company of some out in Ukraine after the disputed Polish colleagues, and see for myself Presidential election of November 22nd some of the complexities and legacies of 2004 (the so-called ‘Orange Polish-Ukrainian history. Our trip started Revolution’), one saw the Polish in Zamosc, south of Lublin, which is a President, Alexander Kwasniewski, play beautiful town in Lubelski, one of the an extraordinarily constructive role. poorest of the Polish regions, which has Poland worked hard to alert the EU to an extensive border with the Ukraine. the need to bring about a satisfactory Our organising host was Dr Bogdan resolution to that flawed election, and Kawalko, Deputy Rector of the College negotiated tirelessly at the side of the of Management and Public EU to ensure a peaceful outcome of Administration in Zamosc, which is very the crisis. active in cross-border teaching programmes. Only in September 2006 did I have the

The Polish-Ukrainian border area (Google Earth).

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Zolkiew: Polish bikers come bearing gifts.

Shortly before reaching the Ukrainian Agreement, Ireland, reluctantly, also had border, we passed through Belzec, site to opt out (the only major EU initiative of one of the most notorious Nazi death that we could not embrace). To the camps, where almost half a million Poles, having a Schengen border Jewish people had been murdered in separating them from the Ukraine must horrific circumstances. Most of the be somewhat analogous to having such Ukrainian towns that we subsequently a border dividing the island of Ireland.8 visited over the following days had also suffered from the murderous activities of Passing through Zolkiew - a sister town the SS Einsatzcommando squads, as to the Polish Zamosc, both having been they systematically exterminated the built to a beautiful Italian renaissance Jewish communities who had played model - we witnessed a charming and such a vibrant part in the history of the amusing example of spontaneous Polish- region since the Middle Ages. Ukrainian friendship. An awesome Polish Harley-Davidson motor cycle club arrived The border crossing itself was an in Zolkiew, complete with noise and enormous building site, in preparation forbidding black leather clothing. But for the extension of the Schengen area they had come bearing gifts for the to the eastern border of Poland. Chaos clergy of the newly restored Catholic reigned, and had it not been for the fact church, and the excited nun can be seen that our passage was smoothed by our in the photo, dashing to tell the parish Ukrainian host, Wlodzimierz Gerycz, a priest of the good news! former Governor of Lviv, our wait might have been much longer and more This was just the first of many uncomfortable. As I contemplated this subsequent experiences that served to new border, I was reminded that when emphasize the nature of Polish relations the UK declined to sign the Schengen with the Ukraine. On our arrival in the 75 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

city of Lviv, we visited the historical Polish/Ukrainian cemetery. After Poland was restored to nationhood by the Treaty of Versailles in 1919, a four-sided war broke out between Ukrainian nationalists, the Poles, the Red Army and White Russian forces. After the end of the subsequent Russo-Polish war in 1921, the Ukraine was divided between Poland and Bolshevik Russia. Around five million Ukrainians found themselves to be citizens of the new Poland. Many of the young Polish soldiers who died fighting Ukrainian nationalist forces in 1919 were buried in the Lviv cemetery. After the post-war border adjustments of 1945, when many ethnic Poles were expelled and the Lviv Oblast was reincorporated into the Ukraine, these graves were desecrated.9 This way to the Polish graveyard; that way to the However, in December 1991, as the Ukrainian graveyard – parity of esteem, Ukrainian style. USSR collapsed, Poland was the first country to recognise the independence representative of the turbulence of the of Ukraine. This was followed in May wider Polish-Ukraine area. The ancient 1992 by the conclusion of a Treaty on fortified castle of Kamieniec Podolskij Good Neighbourly Relations and Friendly had been constructed and substantially Co-operation. The culmination of this expanded by the Polish kings to defend process came in 1997, when President Poland from the southeast against Kwasniewski of Poland and President Ottoman and Tatar invasions. After the Kuczma of Ukraine signed a joint Treaty of Buczacz (1672), the city was declaration of reconciliation. Today the briefly part of Turkey, but in 1699 was Polish war graves have been fully recaptured by Poland. From the second restored, and are a slightly uneasy, but partition of Poland (1793), the city very tangible, focal point of belonged to the Russian Empire. With reconciliation. the collapse of the Russian Empire in 1917, it was briefly incorporated into Our journey to the south-east several short-lived Ukrainian states, and continued, until we reached Kamieniec ended up in Soviet Ukraine after the Podolskij, located very near the old Ukraine fell to the Bolsheviks. During eastern border of pre-1945 Poland. The the Polish-Soviet War (1919-1921), it turbulent history of this city is 76 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

The Polish 1919-20 war graveyard in Lviv: most of the graves are of young men aged 17, 18 and 19. was captured by the Polish army, but turned west again, and made our way was later ceded to the USSR in the gradually back to the Polish border, via Treaty of Riga (1921).10 Chocim, Buczacz, Ivano-Frankiwsk and Krechow. My last image of the Ukraine The bitter struggles with the Ottoman before we re-crossed the border back Empire have left their mark on the area. into Poland was of the Basillian monks The magnificent fortified castle still of the beautiful monastery at Krechow. shows signs of the damage done to it Our host, Wlodzimierz Gerycz, when he when the Turks overcame it in the 17th had been Governor of the Lviv Oblast, century. But more intriguing was to see had been responsible for restoring the a minaret attached to a Catholic church, monastery to its previous occupants which had been seized by the Turks and after the break-up of the USSR in 1991, used as a mosque for a period, and then when Ukraine became independent. reverted back to its original use. The minaret was left in place, but is now What was particularly surprising about used as a bell tower, topped by a the Ukraine was that many of the Christian statue. churches - of various faiths, including the few remaining synagogues - have Over the next few days, the rest of our been, or are being, reconstructed and journey was full of many more arresting are fully functioning. As in Poland, the and thought-provoking images, as we churches have become a unifying badge 77 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

of Ukrainian nationality, and the moral Compared to Poland and the Ukraine, vacuum created by Communism is being we in Ireland have had the good fortune filled by religion. to live on an island, far away from the battlefields of marauding armies of But what was most impressive is the empires in conflict. Learning from our constructive role played by Poland - at internal divisions, our challenge is surely an institutional and personal level - in to rise above our differences and to try guiding the Ukraine towards the EU. to give something back to a Europe that The Polish approach seems to be that has already given us so much. reconciliation with their Ukrainian neighbours - many of them of Polish Once the negative forces of nationalism origin, since Stalin carried out the post- cease to push peoples away from each 1945 expulsions in a quite arbitrary way other, more positive, pragmatic cultural - will be best sought through the and economic considerations can begin Ukraine eventually joining the EU. There to operate, as they appear to be are obvious tensions between the Polish operating between Poland and the and Ukrainian cultures, but there Ukraine. On the global economic map, appeared to be little of the bitterness the lines that now matter are not always that has been, until recently, so national borders. Rather, they are those characteristic of North-South relations, defining ‘natural economic zones’ where and which still marks relations between each such zone possesses, in one or the communities in the North so deeply. other combination, the key ingredients for successful participation in the The positive aspect of borders international economy. With more permeable borders, and with falling The tension between the local and transportation and telecommunication familiar, on the one hand, and the costs, national and regional economies global and unfamiliar, on the other, can are destined to become increasingly be creative. For example, an Irish interdependent. In the words of background prepares one for an President Clinton's former Labour understanding of other states whose Secretary, Robert Reich: right to exist is of recent origin; states within which co-exist peoples of The real economic challenge ... [for a different religions, different ethnic country or region] ... is to increase the origins, and different cultural potential value of what its citizens can backgrounds. Perhaps this is why writers add to the global economy, by like James Joyce and poets like Seamus enhancing their skills and capacities and Heaney strike a chord internationally? by improving their means of linking Perhaps a strong and acknowledged those skills and capacities to the sense of local identity is a pre-requisite world market.11 for the emergence of encompassing Irish and European identities? 78 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

The rapid transition of Poland since suffer severe consequences. Should 1989 from Communism and central Poland ever ask for support within the planning to liberal democracy and a EU to bring about this process of market economy has been facilitated by reintegration and reconciliation, perhaps its progressive integration into the Ireland and the UK should look to the institutions of the EU. However the lessons of their own recent history, and challenge of recently absorbing twelve step forward? new member states has exposed the Union to great strains, and thoughts of John Bradley was formerly a further enlargement have generated Research Professor at the Economic opposition. and Social Research Institute in Dublin, and now works as a What our own experience of borders consultant to the European and divided communities within the Commission, the World Bank and island of Ireland has shown is that lack other international organisations of contact damages societies, both and governments in the area of across the border and internally within development and industrial strategy. each region. The drift towards He currently specialises in new EU separation can easily become self- member states, and has worked on perpetuating, and is difficult to reverse. the impact of pre-accession and The Poles face a similar dilemma. Failure post-accession Structural Funds in to include the Ukraine into the logic of Latvia, Estonia, Poland, the Czech EU integration could increase internal Republic, East Germany and the Ukrainian tensions – between the Western Balkans. western and eastern populations – as well as exacerbating barriers between ENDNOTES two neighbouring states that share so much history. This could lead to the 1. Results from the IFI-supported creation of a zone of poverty and North-South project are reported in instability along the eastern border of Bradley, J. (ed.) (1995), The two the EU. The tensions and dangers arising economies of Ireland: Public policy, from such a situation would be growth and employment, Irish particularly detrimental to Poland, were Studies in Management. Dublin: Oak the Polish-Ukrainian border to come to Tree Press in association with resemble the US-Mexican border, with University College Dublin, Graduate hundreds of thousands of migrants School of Business. attempting to reach some kind of 2. See Bradley, J. (2005). “On promised land.12 The logic of Polish- Becoming European: An Economist’s Ukrainian history makes it natural for Education”, Estudios Irlandeses, No Poland to act as a bridge for the Ukraine 1, pp. 30-38 to the EU. Were this bridge to be (http://www.estudiosirlandeses.org/) closed, the Ukraine and Poland would 79 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

3. Bradley, J. (2004). “Committing to Polish-Ukrainian history is available Growth in a Small European in Roman Szporluk (1997), Ukraine: Economy”, in New Wealth for Old From an Imperial Periphery to a Nations: Scotland’s Economic Sovereign State,, Daedalus. Volume: Prospects, (eds.) W. Alexander, B. 126. Issue: 3. Ashcroft and D. Coyle, Princeton: 10. See Davies, 1981 (op. cit.) Princeton University Press. 11. Robert Reich (1993), The Work of 4. The North-South modelling research Nations: A Blueprint for the Future, had been carried out with Jonathan London: Simon and Schuster. Wright in the research project 12. See “The European Union and supported by the International Fund Ukrainian-Polish Relations”, by for Ireland. See Bradley, J. and J. Andrzej Dybczynski, in Karl Cordell Wright (1993): "Two Regional (ed.), Poland and the European Economies in Ireland", Journal of Union (2000), Routledge: London.. the Statistical & Social Inquiry Also, Malgorzata Jakubiak and Anna Society of Ireland, Vol. XXVI, Part 5, Kolesnichenko (eds.), op. cit. pp. 211-276. 5. Ifo Institute (1997). Die Europäischen Strukturfonds in den neuen Bundesländern, ifo dresden studien 12, Dresden: ifo Institut 6. See Bradley, J. and G. Knauss (2004): Towards a Kosovo Development Plan, ESPIG Policy Paper No. 1, Prishtina, August. 7. See Norman Davies (1981), God’s Playground: A History of Poland. Vol. 1: The origins to 1795, Vol. 2: 1795 to the Present, Oxford: Oxford University Press. 8. For a detailed analysis of the slow pace of Ukrainian institutional and economic reform, see Malgorzata Jakubiak and Anna Kolesnichenko (eds.), Prospects for EU-Ukrainian Economic Relations, Centre for Social and Economic Research (CASE), Report No. 66/2006, Warsaw (www.case.com.pl) 9. A concise, readable account of

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Staff of the Centre for Cross Border Studies with the city of Armagh in the background. From left to right: Patricia McAllister, Andy Pollak, Patricia Clarke, Mairead Hughes, Joe Shiels. THE CENTRE FOR CROSS BORDER STUDIES

February 2007

The Centre for Cross Border Studies, founded in September 1999 and based in Armagh and Dublin, researches and develops co-operation across the Irish border in education, training, health, ICT, business, public administration, agriculture, planning, housing, the environment and a range of other practical areas.

The Centre is an independent company limited by guarantee (UK charity no. XR 31047) and is owned jointly by Queen’s University Belfast, Dublin City University and the Workers’ Educational Association (Northern Ireland). Its principal financial contributors in the past year have been the EU Peace Two programme and the Irish Department of Education and Science. The Centre has also raised a large proportion of its income through sponsorship and selling its research and consultancy services to government and other agencies.

Controversy about relations between Northern Ireland and the Republic of Ireland tends to obscure the broad consensus that exists in both jurisdictions about the value of cross-border co-operation on practical issues. This holds that a low level of contact and communication across the Irish border damages the well-being of both parts of the island, and there is a clear need to identify and overcome the present barriers to understanding and co-operation. 82 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

PURPOSE programmes and organisations which have a strong education, The pragmatic view, that co-operation research and development should take place where it brings real dimension. benefits to both parts of the island, is • Provide sources of comprehensive weakened by an additional factor: there and accurate information about has been too little research to date on North-South and cross-border co- how this practical co-operation is to be operation in Ireland. achieved, and how the outcomes of such research should be developed. The BORDER IRELAND Centre for Cross Border Studies – itself a unique expression of cross-border www.borderireland.info co-operation – provides an objective, university-based setting for policy Border Ireland is the research into and development of such first ever online co-operation. searchable database providing access to The Centre is a policy research and the full range of development institute, whose purpose information on is to: North-South and cross-border issues in • Identify gaps in cross-border Ireland, covering education, health, information, research and mutual agriculture, transport, the learning in Ireland; environment, tourism, culture, • Commission and publish research on mobility issues, business and issues related to opportunities for community development. and obstacles to cross border co- operation in all fields of society and Formally launching it in March 2006, the the economy; Irish Minister for Finance, Mr Brian • Host events at which research Cowen TD, said: “This website will be findings can be discussed and the keystone for information provision disseminated, and at which policy that will enable us all to meet future formation in the area of cross border challenges, be they economic, social or co-operation can be developed; educational. I would encourage • Present the findings of such research everyone who wishes to benefit from a and development projects to the EU, cross-border approach to their activities the two governments, the Northern to make use of this invaluable website.” Ireland Executive, employer, trade union and social partnership bodies, At the beginning of February 2007, and the wider public. Border Ireland had documented (online) • Manage and provide administrative the details of 3,255 North-South and support for cross-border cross-border activities, 1,566 83

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organisations, 1,370 publications, and important projects supported under the 2,067 individual contacts (people). Peace II Programme in terms of its potential long-term impact beyond the With funding from the EU Peace II period of the Programme’s support, as programme, the Centre initiated Border an increasingly significant and valuable Ireland to centralise the very large online resource tool for the collation amount of uncoordinated and and sharing of information and good fragmented information about North- practice relating to cross-border South co-operation and the Irish border development and co-operation”. region. This has involved the creation of an information capture strategy and A second 2006-2008 phase of the strong working relationships with a project is currently being implemented network of over 200 information through the support provided under the providers from all government Peace II Extension Programme. The key departments, North and South; the objective for this second phase is to managing authorities for EU consolidate Border Ireland as the programmes; relevant charitable recognised portal for information on foundations on the island; research and communication about cross-border coordinators in all higher education co-operation on the island of Ireland. By institutions, and key community and December 2006 Border Ireland had voluntary, and business leaders. recorded 9,280 visitors with over 600 organisations registered as users of Border Ireland is available online at the system. www.borderireland.info where people can register free and search The Centre is now developing a range through the information by year, sector of interactive facilities for Border Ireland. and location, to view an organisation’s These include an RSS-fed cross-border history of involvement in cross-border media centre, an online moderated co-operation. Feedback from a variety of discussion forum, an email alert system high level and well respected sources, in and a range of materials to support the border region, across the island, and cross-border decision-making. For internationally, has both confirmed the instance, Border Ireland now provides a need for Border Ireland and recorded regularly updated e-zine which the satisfaction of its users. highlights recent additions to the system, media reports on cross-border The independent evaluation of Border issues, and short sectoral briefing papers Ireland Phase 1 (May 2003-June 2006: which summarise co-operation in key David Clarke Consulting) highlights its areas such as transport, economic work as the “product of the highest development, agriculture, culture, standards in information sourcing and IT environment, health and education. management expertise on the island”. It calls the website “one of the most The Centre has used Border Ireland in 84

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the preparation of an SEUPB- behalf of the Department of Foreign commissioned report on the activities of Affairs and Office of the First Minister the Common Chapter (in the Irish and Deputy First Minister, to manage National Development Plan and the the development of a website to Northern Ireland Structural Funds Plan) provide cross-border mobility in 2004-2005. information in both jurisdictions. This will provide a wide range of It is also using the Border Ireland information to people crossing the Irish database in partnership with the border to live, work, study and retire. International Centre for Local and The aim is that it will eventually cover Regional Development (ICLRD) and the such areas as taxation, social security, National Institute for Regional and pensions, health, childcare, housing, Spatial Analysis (NIRSA) at NUI transport, education and training, Maynooth to develop Mapping employment legislation, INTERREG Programmes, an online telecommunications, banking and spatial mapping initiative to show the insurance. locations of cross-border infrastucture funded through the EU’s INTERREG and WEBSITE other programmes. Such mapping can help to determine the impacts www.crossborder.ie infrastructural projects have on local economic development, land use, Usage of the Centre’s services and residental and commercial website has increased development in a cross-border greatly since 2003, context. the first year for which statistics are Building on the architecture and the available. Since 2004 expertise developed within Border the number of unique Ireland, the Centre has been visitors and the number of visits have commissioned by the North/South each increased by over 260%. The Ministerial Council Joint Secretariat, on number of page views, while a little

Monthly average Unique Visits Page Hits Visitors views

2003 1,619 2,161 4,802 14,373 2004 1,453 2,084 9,178 18,981 2005 2,566 3,603 8,127 24,747 2006 3,481 4,915 10,149 30,534 January 2007 3,800 5,579 10,941 33,732

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more erratic, continues to show an columns can also be accessed at upward trend, while the average www.crossborder.ie/home/ndn/index. number of hits more than doubled in php the four year period up to the end of 2006. Visitors came predominantly from CURRENT RESEARCH AND the , followed by the EXCHANGE PROJECTS Republic of Ireland, Britain, and the rest of the EU. Immigration, Emigration, Racism and Sectarianism Schools Project OPEN DAY The Immigration, Emigration, Racism In June 2006 the Centre held its first and Sectarianism (IERS) Schools Project is Open Day, which was attended by over a two year project (starting in 90 people, mainly from the Armagh September 2006) managed by the area, but also from as far away as Centre for Cross Border Studies and Dublin, Laois and Derry. There were talks funded by the EU Peace II Extension by the staff on various aspects of the Programme. It has recruited 300 Centre’s work and an opportunity for children aged 9-14 from 12 schools – six people to use the Border Ireland system. Protestant and Catholic schools (upper primary and lower secondary) in County A NOTE FROM THE NEXT DOOR Antrim and six Catholic and Protestant NEIGHBOURS schools (upper primary and lower secondary) in Louth, Monaghan and Since September 2006 the Centre has Cavan – to learn about the cultures been sending an opinionated monthly associated with and e-column, ‘A Note from the Next Door Catholicism and with the new Neighbours’, to the more than 4,000 immigrant communities who are people on its e-mail list. These ‘Notes’ becoming numerous in both regions. have provoked enthusiastic feedback The Irish children are also learning that and debate. The ‘Notes’ so far have they have something important in covered issues like whether North-South common with each other and with the co-operation actually works to bring new ethnic community children: they about reconciliation between people in are all from societies which have seen the two jurisdictions; the inaccurate large-scale emigration. The project co- reporting of North-South co-operation ordinator is Marie Hoeritzauer. in the media; the possible re-opening of the Ulster Canal; the importance of EU North-South Student Teacher funding to cross-border co-operation in Exchange Project (Phase 2) Ireland; and the need for Northern Ireland to attract back its highly The immediate aim of this EU-funded educated and skilled emigrants. The project (2006-2008) is to build on the experience of the successful first phase 86 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

of the North-South Student Teacher 2006, at which the 10-12 year old Exchange project (2002-2005) in order pupils who had participated showcased to provide evidence, through a fourth their work: video and film, photographs, year of exchanges feeding into a music, surveys, story-telling, displays of longitudinal research study, of the need old documents, tapestries and posters. to mainstream a system of trainee This event was opened by the Chief teachers doing a key part of their Inspector for Northern Ireland, Marion teaching practice in schools in the other Matchett, and the Deputy Chief Irish jurisdiction. The external evaluator Inspector for the Republic of Ireland, (Dr Maeve Martin, NUI Maynooth) called Gearóid Ó Conluain. Ms Matchett called the first phase “a courageous, inclusive it “a wonderful event, made all the and groundbreaking exchange” and “an more so by the children’s enthusiasm, experience that has been interest and expertise…you have every transformational” for the student right to be proud of the project’s teachers involved. The second phase’s achievements.” research study will explore the impact of the whole project (phases one and two) Public Services to Ethnic on the 100 young participant teachers. and Immigrant Groups The researcher will examine whether the exchange has impacted in a lasting way In October 2006 the final on their personal and professional report from this project – attitudes, and will be seeking evidence Improving Government of the incorporation of peace and Service Delivery to reconciliation elements into their Minority Ethnic Groups in teaching practices as a result of Northern Ireland, Republic the exchange. of Ireland and Scotland – was launched at Stormont by the Minister of Pride of our Place State at the Northern Ireland Office, David Hanson MP. There were follow-up The final report of Pride of launches in Edinburgh and Dublin. The our Place, a cross-border study examined how services such as environmental project for health, education, policing, employment primary schools – which is support and housing are provided to the last of the Centre’s these groups in the three jurisdictions, 2002-2006 EU funded with a particular focus on how Northern action research projects – Ireland’s public authorities can learn will be published in Spring from the practice of their nearest 2007. The report is by neighbours. The research work was project researcher Mary carried out by a partnership led by the Burke of St Patrick’s College National Consultative Committee on Drumcondra. The project ended with a Racism and Interculturalism (NCCRI) in celebratory event in Armagh in May Dublin, together with Piaras MacEinri 87 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

from University College Cork, the border learning between jurisdictions); Institute for Conflict Research in Belfast positive duties like Section 75 in and Organisation and Social Northern Ireland are important; there is Development Consultants Ltd in a need for more awareness training Edinburgh. among ‘front line’ staff; mainstreaming and targeting of services must go In March 2006 over 160 people from together; the lack of ethnic diversity in over 50 public agencies in the three public service employment must be jurisdictions, plus representatives of tackled; data collection is essential for minority ethnic and immigrant groups, improving service provision; pro-active attended a conference in Belfast (despite planning in terms of migration strategies a transport strike) to discuss an and for service provision is crucial; ‘emerging findings’ report from the specialised and expert NGOs have a key project team. The conference role to play; and effective language discussions were incorporated into the communication with and engagement final report to the commissioner of the of ethnic groups are key requirements. research, the Office of the First Minister and Deputy First Minister in Northern • Mapping Frontiers, Plotting Ireland (other funders were the Joseph Pathways: Routes to North-South Rowntree Charitable Trust and the Cooperation in a Divided Island. British Council Ireland). The Centre was The final report highlighted four key involved in 2004- elements essential for effective service 2006 in a large- provision to minority ethnic groups: scale collaborative mainstreaming to ensure that the needs project, commissioned by the Higher of such groups are included in the Education Authority, between University planning, implementation and review of College Dublin (Institute for British-Irish public services; targeting in order to Studies and Institute for the Study of overcome the inequalities experienced Social Change), Queen’s University by specific groups; benchmarking to Belfast (Institute of Governance and gather data to ascertain who is using Centre for International Borders services and who is not, and what Research), the Centre for Cross Border outcomes they experience; and Studies and Democratic Dialogue. This engagement of the minority ethnic project focussed on three main themes: groups themselves. a comparative study of borders with an emphasis on the creation and Among the report’s conclusions and consolidation of the Irish border; the recommendations were that joined-up Irish border as a social, economic and government and inter-agency co- cultural divide; and pathways for operation – often lacking now – can promoting cross-border contact, co- improve service provision (as can cross- operation and mutual understanding. 88

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In 2007 Irish Academic Press is consultation on improving co-operation publishing a book, Crossing the Border: between the health systems of the New Relationships between Northern Member States. Ireland and the Republic of Ireland Website: (edited by Professor John Coakley of www.iese.edu/en/events/Projects/ University College Dublin and Professor Health/home/home.asp Liam O’Dowd of Queen’s University Belfast) which features the outstanding contributions to this research project. CURRENT TRAINING PROJECTS There are three chapters by contributors from the Centre: on North-South North-South and Cross-Border Public educational co-operation by Andy Sector Training Programme Pollak, on North-South health co- operation by Dr Patricia Clarke, and on In March 2007 the Centre – together the working of the Common Chapter by with its partners, Co-operation Ireland Dr Eoin Magennis. and the Chartered Institute of Public Finance and Accountancy (CIPFA), • Europe for Patients Northern Ireland’s leading provider of training to the public sector – will start a The final report of this EU Sixth fourth training course for civil and public Framework-funded research project, servants working on North-South and which brought the Centre together with cross-border issues in North/South research institutes in Britain, Spain, bodies, government departments and France, Belgium, Slovenia and Estonia to other public agencies in the two Irish study the potential of cross-border jurisdictions. This will bring to 100 the health care in an increasingly integrated number of officials who have taken Europe, was published in 2006. CCBS these courses since they were started in research associate Dr Jim Jamison was January 2005. the Irish researcher on this project. In October 2006 research manager Dr There are currently over 700 officials Patricia Clarke made a presentation in working directly in North-South and Ghent, Belgium on the findings of the cross-border co-operation on the island Irish case study, which documented the of Ireland. There are few opportunities continuing low levels of mobility among for such people to undertake induction patients and health professionals on the or training courses to work in this new, island and recommended new flexible complex and sensitive area. contracting and joint planning arrangements. The report’s case studies The courses, which take place over five on cross-border health initiatives days during a four month period, throughout the EU, as well as its feature four modules: North-South co- recommendations, have now been fed operation in the public and NGO into a European Commission-run public sectors; North-South public finance and 89 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

governance issues; North-South by teams of trainees (paired on a North- economic and business co-operation; South basis) from the four courses to and cross-border co-operation at local date. authority and community level. President Mary McAleese presented the graduates CURRENT ADMINISTRATION of the third course with their certificates PROJECTS at a ceremony in Belfast City Hall on 22 February 2007, and the Head of the The Centre has filled an important niche Northern Ireland Civil Service, Nigel by providing administrative support to Hamilton, will do the same at the end of North-South and cross-border initiatives, the fourth course in June. particularly in the field of education. Many cross-border projects are sustained The programme features prestigious largely through EU funding and the guest lecturers including Sir George commitment of enthusiastic individuals, Quigley, chairman of Short Brothers and when the money and enthusiasm (Bombardier Aerospace Group); runs out their absence of a proper North/South Ministerial Council joint administrative structure often dooms secretaries, Mary Bunting and Tom them to early closure. The Centre offers Hanney; head of the Northern Ireland this cross-border administrative Review of Public Administration, Greg structure, and a detailed knowledge of McConnell; director of the Institute of support mechanisms in both Irish Public Health in Ireland, Dr Jane Wilde; jurisdictions, which can ensure such Fermanagh businessman and former projects’ longer-term sustainability. GAA president, Peter Quinn; chief executive of the Northern Ireland UNIVERSITIES IRELAND Community Relations Council, Dr Duncan Morrow; director of the Community Foundation for Northern Ireland, Avila Kilmurray; Professor John Bradley, formerly of the Economic and Social Research Institute; and the chief executives of four North-South bodies – Liam Nellis from InterTradeIreland, Pat The Centre acts as the secretariat for Colgan from the Special EU Programmes Universities Ireland (UI), set up in Body, Martin Higgins from the Food 2003 to promote co-operation and Safety Promotion Board and Derick collaboration between the nine Anderson from the Foyle, Carlingford universities in Northern Ireland and and Irish Lights Commission. the Republic of Ireland. Its chairman for the 2005-2007 period is Dr In 2007 the organising partners are Iognáid Ó Muircheartaigh, President planning to publish a booklet featuring of National University of Ireland the best written assignments carried out Galway. 90

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Universities Ireland North-South Masters Scholarship winners in Dublin, 11 September 2006. From left to right: Professor Ger , NUI Galway; Ronan Magee (scholarship winner); Professor John Hughes, President, NUI Maynooth; Aisling Falconer (scholarship winner); Professor Peter Gregson, Vice-Chancellor, Queen’s University Belfast; Mr Martin Conmy, Dublin City University.

In the past year Universities Ireland’s December 2006, and will be work has included initiatives in the discussed at a follow-up meeting in following areas: spring 2007, which will also be addressed by the director of the • A feasibility study into the equivalent Scottish university establishment of an all-island, technology transfer network, inter-university Technology INTERFACE. Transfer network This was commissioned jointly with • An initiative to bring together InterTradeIreland and the Irish Irish universities to support a Universities Association and was number of African universities in carried out by a team from Heriot- developing effective policies for Watt University in Edinburgh. It was building their research capacity launched in June 2006 by Micheál This initiative came out of a visit by Martin TD, Irish Minister for a high-level UI delegation (with Enterprise Trade and Employment, representatives from Trinity College and his Northern Ireland Dublin, University College Cork, counterpart, Maria Eagle MP. It led University of Limerick and Queen’s to the preparation of a business University Belfast) to Uganda in plan in consultation with PA November 2005. After follow-up Consulting Group. This plan was discussions with Irish Aid (the presented to the Irish universities’ development co-operation wing of Vice Presidents for Research in the Department of Foreign Affairs), 91 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

the Centre for Cross Border Studies (under the auspices of the IBEC-CBI (on behalf of UI) was included in a Joint Business Council), who will list of higher education institutions fund Masters students in areas of (the only one based in Northern particular interest to business: Ireland) deemed eligible to lead a telecommunications, chemistry, food funding bid to the new Programme science, the environment, logistics of Strategic Co-operation between and law. This year’s sponsoring firms Irish Aid and Higher Education and are Healy Group, CSA Group, Dublin Research Institutes 2007-2011. A Port, Arthur Cox, BT and RPS-KMM. research funding bid to enable Irish The expanded scheme will be universities, North and South, to launched by the Director General of support a number of African the Confederation of British universities (in Uganda, Tanzania and Industry, Richard Lambert, who is a Mozambique) in developing world authority on university- effective policies for building their business collaboration, in Dublin on research capacity, is being prepared 23 March 2007. In the 2006-2007 for submission in April 2007. academic year UI awarded two • A series of meetings with scholarships: one to Ronan Magee, Universities UK, the representative a University of Ulster graduate doing body of British universities, was a Master’s degree in forensic initiated in September 2004 in computing at DCU, and one to Dublin. The second meeting took Aisling Faulkner, a TCD graduate place in London in January 2006 doing the cross-border Master’s and discussed matters of mutual course in human rights law jointly interest in the areas of research, run by NUI Galway and Queen’s funding, leadership and University Belfast. management, business-university • University-Business collaboration and European issues. A collaboration events. third meeting will take place in In March 2006 UI Galway in September 2007. organised the sixth North- • North-South Masters South Higher Education Scholarships conference (in Malahide, In 2007-2008 there will be Co Dublin) under the scholarships for eight students under title ‘What role for this expanded scheme, which offers Higher Education in the d15-20,000 scholarships to students development of the undertaking a cross-border Master’s 21st century course requiring relocation to the workplace?’ The keynote other Irish jurisdiction. This year, for speakers were the Board Chairman the first time, six of the scholarships of the Intel Corporation, Dr Craig will be 50% sponsored by individual Barrett; the Directors General of the Northern and Southern businesses Confederation of British Industry 92 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

and the Irish Business and Employers 2003 by a group of senior teacher Confederation, Sir Digby Jones and education specialists from Turlough O’Sullivan; the Education universities, colleges of education and Training Officer of the Irish and other education agencies in Congress of Trade Unions, Peter both jurisdictions. The 2006-2007 Rigney; the Chief Executive of joint chairs of SCoTENS are Professor Forfás, Martin Cronin, and the Richard McMinn, Principal of President of Dublin City University, Stranmillis University College, Professor Ferdinand von Belfast, and Dr Pauric Travers, Prondzynski. The conference was President of St Patrick’s College opened by the Secretary General of Drumcondra. the Irish Department of Education and Science (DES), Brigid McManus, SCoTENS’ 2006 annual conference, and the Permanent Secretary of the ‘Teacher Education and Schools: Northern Ireland Department for Together Towards Improvement’, was Employment and Learning (DEL), held in October in Belfast. The keynote Aideen McGinley. This event was speakers were Marion Matchett, Chief organised in collaboration with the Inspector of the Northern Ireland IBEC-CBI Joint Business Council on Education and Training Inspectorate; behalf of DES and DEL. Professor Gordon Kirk, Academic Universities Ireland is funded by an Secretary of the Universities Council for annual levy paid by the nine universities, the Education of Teachers (UCET) and and by grants from the Department of former Dean of the Faculty of Education Education and Science in Dublin, the at University of Edinburgh; Professor Department for Employment and Michael Totterdell, Director of the Learning in Belfast and InterTradeIreland Institute of Education at Manchester in Newry. Metropolitan University; and Emer Egan, Website: www.universitiesireland.ie Assistant Chief Inspector, Irish Department of Education and Science. STANDING CONFERENCE ON Previous SCoTENS’ annual conferences TEACHER EDUCATION, NORTH AND were on ‘Teacher Education for SOUTH (SCoTENS) Citizenship in Diverse Societies’ in 2005; ‘The Changing Contexts of Teacher Education, North and South’ (with a particular emphasis on Teaching Councils) in 2004; and ‘Challenges to Teacher Education and Research, North and South’ in 2003. The Centre also acts as the secretariat for the Standing SCoTENS has also provided seed Conference on Teacher Education, funding for all-island conferences on North and South. This was set up in 93 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

social, scientific and environmental Ireland). A significant proportion of its education (three), initial teacher funding comes from institutional education, citizenship and diversity subscriptions from universities, colleges education (two), educational research, of education, teaching councils, special educational needs (two) and the education trade unions, education competences approach to teacher centres, curriculum councils and other professional development; for North- bodies involved with teacher education. South research projects on the It also receives grant aid from the social/national identity of young children Nuffield Foundation. in the border region, ICT in teacher education, children with profound and INTERNATIONAL CENTRE FOR LOCAL multiple learning difficulties, student AND REGIONAL DEVELOPMENT teacher exchanges, student perceptions of history, geography and science, and universities’ role in continuing teacher professional development; and for a North-South ‘toolkit’ for teachers and trainers working in the area of linguistic and intercultural education.

For the year 2007-2008 SCoTENS will The Centre administers the International provide seed funding for North-South Centre for Local and Regional research and conference projects on the Development (ICLRD). The ICLRD is a following: developing reflective skills in North-South-US partnership to explore student teachers; social justice and expand the contribution that education in initial teacher education; planning and the development of digital video as an ICT learning tool in physical, social and economic schools and teacher education; art and infrastructures can make to improving science in education; and bringing the lives of people in both Irish schools together to promote education jurisdictions. The partner institutions are: for diversity. the National Institute for Regional and Spatial Analysis at the National The new SCoTENS website, University of Ireland, Maynooth; the http://scotens.org, highlights, in School of the Built Environment at the particular, resources on special University of Ulster; the Institute for education and citizenship education. International Urban Development in Cambridge, Massachusetts; the Athlone SCoTENS is funded by annual grants Institute of Technology, and the Centre from the Department of Education and for Cross Border Studies. Each of these Science, and the Department for partners brings together complementary Employment and Learning and the expertise and networks – North and Department of Education (Northern 94 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

South, East and West – to create a Spatial Strategies on the Island of unique, all-island centre that is more Ireland’. This was opened by the Irish than the sum of its parts. The ICLRD is Minister for the Environment, Heritage very open to involving other academic and Local Government, Dick Roche TD and research institutions in its activities. and the Permanent Secretary at the The director of the ICLRD is John Northern Ireland Department for Driscoll, who is also a Vice-President of Regional Development, Gerry McGinn. the Institute for International Urban Conference presentations are available Development. It is funded by the at www.iclrd.org. The conference International Fund for Ireland, the Irish highlighted the findings from the Government, InterTradeIreland and the InterTradeIreland–funded ICLRD research Special EU Programme Body. report Spatial Strategies on the Island of Ireland: Development of a Framework The ICLRD for Collaborative Action. The study • Provides independent, expert and envisaged that such an all-island joined-up research, thinking and collaborative framework would: policy advice on cross-border and • Inform future investment all-island spatial planning and local programmes; and regional development issues • Maximise synergies between (economic development, transport, different aspects of the investment housing, environment, service programmes; provision, etc); • Promote regional competitiveness; • Offers capacity building programmes • Help to re-position the island as a for communities and local, regional globally innovative and competitive and national government location. representatives and officials; • Acts as a catalyst and conduit to In 2007-2008 ICLRD research, training bring relevant actors, North and and outreach activities will address the South, together to work on following key issues in support of all- common goals; island and cross-border spatial planning • Promotes international co-operation initiatives: and exchanges. • Collaborative spatial strategies and capacity building for planning for In November 2006 the local and regional development; ICLRD organised a major • Promoting sustainable communities conference in Newry, Co and integrated housing; Down (in association with • Learning from other practices on the InterTradeIreland), under island of Ireland and elsewhere; the title: ‘Implementing a • Understanding the role of the Framework for private sector in shaping Collaborative Action – development strategies; 95 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

• Developing compatible and sustainable communities. The comparable data to support project will collaborate with the evidence-based decision making. North/South Forum on Sustainable Three core research programmes are Communities. being developed by the partners to • Cross-border micro-regions. The support policy makers and practitioners ICLRD will collaborate with in central and local governments and practitioners to learn how cross-border networks: approaches to social and local economic development and • Governance to support inter- community reconciliation in smaller jurisdictional spatial planning. cross-border areas such as Too often joint strategies or spatial / can become the plans are developed by central basis for more joined-up government and/or several local programmes. As part of this councils, but are not fully initiative, ICLRD will continue to implemented. The ICLRD will focus work with cross-border bodies such on the institutional frameworks and as the Irish Central Border Area financing mechanisms that are Network to promote co-operation necessary to deliver a spatially among spatial planners working in integrated approach in an inter- the border counties. jurisdictional setting. Priority projects will be selected for analysis together Other planned research activities include with field documentation of relevant the development of a unique atlas of international best practices that can all-island maps with accompanying be adapted to fit local conditions. commentary to provide a spatially Lessons learned from specific cases informed picture of the entire island. can be applied to other cross-border The ICLRD is currently co-ordinating a or regional projects. project among its partners to develop • Sustainable Communities. The web-based mapping applications that ICLRD will document emerging will allow users to access information initiatives in integrated housing and through maps of cross-border activities. community development with a The ICLRD is also exploring a project to particular concern for interface or better understand the implications of segregated communities. Using a the growing migrant workforce in both sustainable community approach, jurisdictions. the project will select areas on either side of the border to reflect North-South Conference for segregation by religion in the North Chairpersons of Public Bodies and segregation by social class in and State Agencies the South. The findings will help housing practitioners to shape their The Centre was contracted by the approaches to building integrated, Chairpersons Forum (Northern Ireland) 96 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

Speakers at the North-South Chairpersons Conference. From left to right (front): Mr Brian Rowntree, Chair, Northern Ireland Chairpersons Forum; Ms Karen Erwin, Chair, Forum of Chairpersons of State Sponsored Bodies (RoI); (back) Mr Nigel Hamilton, Head of the Northern Ireland Civil Service; Mr Dermot McCarthy, Secretary General to the Irish Government.

and the Forum of Executive (RoI), the Combat Poverty Chairpersons of State Agency (RoI), Equality Commission (NI), Sponsored Bodies (Republic Equality Authority (RoI), Health of Ireland) to organise the Promotion Agency (NI), the National two bodies’ first North- Economic and Social Forum (RoI), Rural South conference in Newry Development Council (NI), Arts Council in November 2006. The (RoI), Labour Relations Agency (NI), FÁS keynote speakers were (RoI), General Consumer Council (NI), Nigel Hamilton, Head of Irish Aviation Authority (RoI), Ofreg (NI), the Northern Ireland Civil Irish Blood Transfusion Service (RoI) and Service, Dermot Foras na Gaeilge. A follow-up McCarthy, Secretary General to programme of cross-border workshops the Irish Government, Dr Tom Frawley, is planned for 2007. the Northern Ireland Ombudsman and Eddie O’Connor, Chief Executive of North/South Forum on Sustainable Airtricity. Around 80 chairpersons of Communities public bodies from both jurisdictions attended, including the chairs of major In February 2006 the Centre came bodies such as the Northern Ireland together with the Northern Ireland Housing Executive, the Health Service Housing Executive and the International 97 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

Centre for Local and Regional project has played a leading role in Development to organise the first developing a strategic partnership North/South Forum on Sustainable between the Open University in Ireland Communities workshop. This was co- and the ICTU, which mirrors the UK- chaired by Brian Rowntree, chairman of wide agreement between the Open the Northern Ireland Housing Executive, University and the Trades Union and Des Geraghty, the senior trade Congress unionlearn programme – this unionist who chairs the Affordable offers new learning opportunities and Homes Partnership in Dublin. The progression routes for trade union workshop brought together 40 housing members. CBO has also offered learning and community regeneration specialists opportunities to significant numbers of from North and South to discuss a refugees, asylum seekers and migrant range of issues, including urban and workers, and in November 2006 rural regeneration, affordable housing, organised a conference in Belfast on the the integration of social and private educational needs of migrants on both housing, the housing market in the sides of the border. border region, and the housing needs of homeless people, travellers and migrant COMPLETED RESEARCH PROJECTS workers. A funding application to do a programme of work for 2006-2008 was In its initial phase (1999-2005), the submitted to the EU INTERREG Centre commissioned 13 cross-border programme but was not successful. The research projects in the fields of partners are currently exploring other telecommunications developments, funding avenues health services, disadvantage in education, EU funding programmes, Cross Border Openings local government links, mental health promotion, waste management policies, The Centre is also a partner with the local history societies, animal health, the Open University in Ireland and the Irish euro, sustainable development, diversity Congress of Trade Unions (ICTU) in in early years education, and science Cross Border Openings (CBO), an EU- and citizenship education. funded project which offers 500 free places on a return to study programme These projects involved researchers for socially and educationally drawn from 13 universities, colleges and disadvantaged people on both sides of independent research centres in Ireland the border. The project also involves the and Britain: Queen’s University Belfast, provision of training on cultural diversity University of Ulster, Dublin City issues, and joint work with the trade University, University College Dublin, union movement to promote the National University of Ireland Galway, concept of workplace learning in National University of Ireland Maynooth, general and workplace learning St Patrick’s College Drumcondra, agreements in particular. The CBO Stranmillis University College, the 98 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

Institute of Public Administration, Belfast University of Ulster, and Ms Michelle City Hospital, Dundalk Institute of Butler of the Institute of Public Technology, the London School of Administration in Dublin. Hygiene and Tropical Medicine and the Centre for Cross Border Studies itself. Ireland’s Learning Poor: The Centre has published the following Adult Educational research projects: Disadvantage and Cross- Border Co-operation The Evolution of Telecom (2001) Technologies: Current A study of the needs of Trends and Near-Future the more than a million Implications (2001) people on the island who A number of case studies left school with few or no of developments in mobile qualifications by Dr Mark and wireless telephony Morgan of St Patrick’s College, across the Irish border Drumcondra, and Mr Paul McGill, from a research team led formerly education correspondent of the by two of Ireland’s Belfast Telegraph. They concluded that leading specialists in information current policies in both jurisdictions retrieval, data analysis and image and were far removed from a vision of signal processing: Professor Fionn lifelong learning which allows people of Murtagh, then of Queen’s University all ages and social classes equal access Belfast, and Dr John Keating of National to education and training. University of Ireland Maynooth. The project was sponsored by eircom. Creating Living Institutions: EU Cross-Border Co- Cross-Border Co- operation after the Good operation in Health Friday Agreement (2001) Services in Ireland A study by Professor Brigid (2001) Laffan and Dr Diane Payne A study of the past, of the Institute for British- present and potential for Irish Studies at University future co-operation in College Dublin, which health services across analysed the interaction the Irish border by a between the North-South research team led by Dr Institutions set up under Jim Jamison, formerly director of the Good Friday the Health and Social Care Research Agreement – notably the North/South Unit at Queen’s University Belfast, and Ministerial Council and the Special EU including Professor Martin McKee of the Programmes Body - and the EU’s London School of Hygiene and Tropical funding programme for cross-border co- Medicine, Dr Ciaran O’Neill of the operation, INTERREG. 99 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

Cross-Border Co-operation National University of Ireland in Local Government: Galway led by Dr Margaret Models of Management, Barry and Ms Sharon Friel. It Development and examined a number of Reconciliation (2001) cross-border projects in the A study by Professor Derek areas of postnatal Birrell and Amanda Hayes depression, public of the University of Ulster awareness of suicide, of the different kinds of cancer support services, cross-border links between the mental health of local authorities, including one-to-one young men and mental health in rural linkages, local government cross-border communities. The study also looked at networks, and cross-border partnerships the comparability and compatibility of involving other agencies. It also analysed mental health data sources in the two the project management methods used, jurisdictions. the views of the councillors involved and the involvement of the European Union. The Local History Project: Co-operating North and The Foot-and-Mouth South (2003) Disease Crisis and the This study, by Dr Jacinta Irish Border (2002) Prunty, Dr Raymond A study of the cross-border Gillespie and Maeve dimension of the 2001 Mulryan-Moloney of foot-and-mouth disease National University of outbreak by the Centre’s Ireland Maynooth, research manager, Dr provided the basis for the Patricia Clarke, with first all-Ireland register of local comments from the history societies. They identified 330 Departments of societies, but estimated that a complete Agriculture in Belfast and Dublin. Issued list would exceed 500 societies, North exactly a year after the original outbreak and South, involving an active in England, the report’s findings were membership of perhaps 28,000 persons. praised by the two Ministers, Brid Rodgers and Joe Walsh, as “extremely Towards a Green Isle? Local valuable” in helping the Departments to Sustainable Development on the formulate actions to deal with animal Island of Ireland (2004) health emergencies. A study of local sustainable development as carried out (through the Promoting Mental Health and Social Local Agenda 21 process) by local Well-being: Cross-Border authorities and social partners Opportunities and Challenges (2002) throughout Ireland, by a cross-border This is a two-part study by a team from 100 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

team comprising Geraint Ellis relationship between and Dr Bill Neill of the science and citizenship. Queen’s University Belfast’s The students explored School of Environmental subjects such as air and Planning, and Dublin-based water pollution, waste researchers Una Hand and management, GM and Brian Motherway. It found fair trade foods, that 54% of local authorities renewable energy and on the island had begun a energy efficiency. Much process of LA21, but of the cross-border stressed that the main challenge is to work centred on a shared move from debate to action. Web resource.

Diversity in Early Years COMMISSIONED STUDIES AND Education North and EVALUATIONS South: Implications for Teacher Education (2004) The Centre has carried out studies and The aim of this EU-funded evaluations for government and study was to identify the other public agencies. These have difficulties facing teachers included: and children in areas of inter-community conflict • A review of policy recommendations and tension on both sides from the five research projects of the Irish border with a commissioned by the Higher view to developing a framework for Education Authority under the preparing young teachers working with 2004-2006 Cross-Border Programme children in the early years. It was carried for Research contributing to Peace out by researchers at St Patrick’s College and Reconciliation: Intergenerational Drumcondra in Dublin and Stranmillis transmission and ethno-national University College in Belfast, Mairin identity in the border area; Equality Kenny and Helen McLaughlin, under the and social inclusion; Mapping direction of Philomena Donnelly and Frontiers, Plotting Pathways; E- Louise Quinn. consultation; and Virtual Research Centre for Point-of-Care Technology Citizenship and Science: The (February 2007). Connecting Axes (2005) • An overview of the activities of the The final report of the EU-funded Common Chapter of the Republic of Citizenship and Science Exchange (CaSE) Ireland’s National Development Plan Schools project looked at how a group and Northern Ireland’s Structural of 12-14 year old students in 16 schools Funds Plan (2004-2005) for the on both sides of the border deepened Special EU Programmes Body – in their understanding of the dynamic 101 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

partnership with FPM Chartered of Ireland, for University for Industry Accountants (December 2006) (2001) • A report on public attitudes to the • An evaluation of the Co-operation development of cross-border health and Working Together (CAWT) services, with particular reference to cross-border network of health GP out-of-hours services, for the Co- boards and trusts, for CAWT(2001) operation and Working Together • A ‘scoping study’ of North-South cross-border network of health School, Youth and Teacher boards and health trusts (October Exchanges, for the Department of 2006) Education (Bangor) and the • A report on education and skills in Department of Education and the North West, for the Irish Science (Dublin) (2001) Department of Education and Science and the Northern Ireland SEMINARS AND STUDY DAYS Department for Employment and Learning (September 2006) The Centre holds regular seminars and • An Evaluation of the Education for study days in Armagh and Dublin to Reconciliation Project (Year One and examine strategic areas of interest to Two), for the City of Dublin North-South policy makers. These bring Vocational Education Committee together groups of policy makers, senior (2003-2005) practitioners and academics to discuss a • A Review of Cross-Border Mobility research paper prepared by the Centre Information Provisions in the South under the chairmanship of a of Ireland, for the North/South distinguished authority in the field. As Mobility Information Group (2003) the Centre’s research programme has • An Evaluation of the Upstate developed, these seminars have moved Theatre Company’s ‘Crossover’ from studying broad policy fields to cross-border community drama examining more focussed areas which project (2002-2004) have been the subject of specific • ‘Towards a Strategic Economic and research projects and commissioned Business Research Agenda for the work. Cross-border seminars and study island of Ireland’, for days have been organised in the InterTradeIreland (2002) following areas: • A report on public feedback to the PriceWaterhouseCoopers/Indecon • Agriculture Obstacles to Mobility study, for the • Education North/South Ministerial Council • Tourism (2002) • Information and Communication • A study into the feasibility of Technologies extending University for • Health Services Industry/learndirect to the Republic • Mental Health Promotion 102

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• Developments in Telecom then First Minister of Northern Ireland, Technologies David Trimble; the then Deputy First • Local government links Minister, Seamus Mallon; the then RUC • Foot and Mouth disease Chief Constable, Sir Ronnie Flanagan; • School, Youth and Teacher the head of the EU’s cross-border Exchanges INTERREG programme, Esben Poulsen; • European citizenship education the international emergency • The euro communications expert, Professor • Business research Edward Johnson; Ambassador Hermann • The North-South Consultative Forum von Richthofen of the German-Polish • Ageing Governmental Commission; and the • Border region history* then SDLP leader . • Border region regeneration* Participants came from 13 countries to • Waste Management discuss cross-border co-operation in five • Economic co-operation* areas: administrative institutions, • Planning and mobility in the North security and policing, business and the West* economy, the environment, and culture • Science and Citizenship and the arts. • Information provision • Housing and sustainable The Centre has also organised six North- communities South conferences on aspects of higher • Education and Skills in the North education on behalf of the Department West (in partnership with the for Employment and Learning (Belfast) NSMC) and the Department of Education and • Mental health research Science (Dublin). The first of these, in October 2002 in Armagh, was on * For the Mapping Frontiers, Plotting ‘Ireland as a Centre of Excellence in Pathways project Third Level Education.’ This conference, which was attended by the CONFERENCES presidents of seven of the nine universities on the island of Ireland, was The first major conference organised by addressed by several world authorities the Centre, jointly with the Centre for on higher education. These included International Borders Research (CIBR), Professor Malcolm Skilbeck, the OECD’s was held at Queen’s University Belfast in former Deputy Director for Education; autumn 2000 under the title ‘European former US Secretary of Education, Cross Border Co-operation: Lessons Richard Riley; the Director-General for for and from Ireland.’ This Education and Culture in the European international conference was opened by Commission, Nikolaus van der Pas, and the Irish President, Mary McAleese, and the Chief Executive of the English was addressed by a wide range of Higher Education Funding Council, Sir distinguished speakers, including the Howard Newby. 103 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

In May 2003, the second conference southern Sweden (with keynote speaker was held in Cavan on ‘International Professor Linda Nielsen, Rector of the Education: A Capacity Builder for the University of Copenhagen), and the Island of Ireland?’ The keynote EUCOR network between French, speakers were Lindy Hyam, Chief German and Swiss universities in the Executive of IDP Education Australia, a Upper Rhine region. The conference was world leader in international education co-chaired by Sir Kenneth Bloomfield and development services, and Neil and Noel Dorr. Kemp, director of the Education UK Division of the British Council. The fifth conference was The conference was chaired by Sir held in Belfast in June 2005 George Quigley. under the title ‘Higher Education and Business: In November 2003, the third Beyond Mutual conference was held in Incomprehension’. The Belfast on ‘Widening keynote speaker was Access to Third Level Richard Lambert, member Education on the Island of the Bank of England’s of Ireland: Towards Monetary Policy Better Policy and Committee, former editor of the Practice’. The keynote Financial Times and author of the speakers were Dr Arnold seminal Lambert Review of University- Mitchem, President of the Business Collaboration for the British Council for Opportunity in Government. The conference was Education in Washington opened by the Irish Minister for DC, a champion of access to higher Education and Science, Ms Mary education for low income and disabled Hanafin TD, and the Northern Ireland Americans for 35 years, and Samuel Minister for Employment and Learning Isaacs, Executive Officer of the South and Education, Ms Angela Smyth MP. African Qualifications Authority. Other speakers included the Presidents of Queen’s University Belfast and NUI The fourth conference – Maynooth, Professor Peter Gregson and entitled ‘Cross-Border Professor John Hughes, and leading Irish Higher Education Co- entrepreneurs Dr Chris Horn and Dr operation in Ireland and Hugh Cormican. Europe’ – was held in Cavan in May 2004. This The sixth conference was held in examined examples of good Malahide in March 2006 with the title practice in cross-border ‘What role for Higher Education in higher education elsewhere the Development of the 21st in Europe, notably in the Century Workplace?’ See under Oresund region of Denmark and Universities Ireland for details. 104 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

PUBLICATIONS The Centre for Cross Border Studies always takes a very fresh and innovative In 2001 the Centre published, in approach, bringing together sources of association with Cork University Press, a energy on both sides of the border that series of short books containing essays used to be back to back but are now in by leading writers on key issues of an extraordinary dialogue. interest to both Irish jurisdictions: President Mary McAleese, • Multi-Culturalism: February 2005 the View from the Two by It is essential that North-South co- Edna Longley and operation is not the exclusive preserve Declan Kiberd, with of the politicians or the public sector. a foreword by Other actors in the North-South arena – President Mary the private sector, trade unions, the McAleese farming sector, the voluntary and • Can the Celtic Tiger community sector, the universities and cross the Irish other educational institutions, to name Border? by John but a few – have a critical role to play Bradley and Esmond also in this process. This is where the Birnie, with a role of the Centre for Cross Border foreword by Peter Studies has been, and will continue to Sutherland be, so important and valuable. You have • Towards a Culture carved out a very useful role in of Human Rights in complementing the work of the new Ireland by Ivana North-South institutions created by the Bacik and Stephen Agreement, and serving as a kind of Livingstone, with a interface between the public sector in foreword by Mary both parts of the island and non- Robinson governmental practitioners in the field.

WHAT THEY SAY The Taoiseach, Bertie Ahern TD, February 2005 I would like to take this opportunity to acknowledge the important work that The continued excellence of the research the Centre for Cross Border Studies is carried out by the Centre brings to mind taking forward under your direction. I the words of John Ruskin: “Quality is wish you well and continued success in never an accident. It is always a result of your work. intelligent effort.” Secretary of State for Northern Ireland, Rt Hon Peter Hain MP, January 2006 (in Nigel Hamilton, Head of the Northern a letter to the director) Ireland Civil Service, March 2006 105

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The Centre for Cross Border Studies has • Further sessions of the innovative now firmly established itself as a major North-South and Cross-Border Public repository of information, research, Sector Training Programme; analysis and debate on all aspects of • Facilitating a seminar to hear the cross border co-operation. Its work is of views of the higher and further assistance to policy makers, North and education and business sectors on South, through its commitment to high the education, skills and workplace quality research work. development challenges in the North-West of the island; and The Centre plays a pivotal role in • Promoting closer collaboration developing cross-border co-operation between the Chairpersons of the across a wide range of subjects of direct Boards of Public Bodies, North and relevance to our citizens. It contributes South. to research and co-operation across a spectrum of practical areas including The North/South Ministerial Council education, health, business, public Joint Secretariat congratulates the administration, communications, Centre once more on the vital work it is agriculture and the environment. carrying out, and assures Andy Pollak Crucially, the Centre has ensured the and his team of our ongoing support for optimum access to its work through a the future. comprehensive programme of publications and well- supported Mary Bunting and Tom Hanney, NSMC conferences which enables policy Joint Secretaries, February 2007 makers, practitioners and academics to come together to discuss the 2002-2005 EVALUATION QUOTES Centre’s findings. by Brian Harvey (Brian Harvey Social Some of the valuable work undertaken Research, Dublin) by the Centre in the last 12 months includes: Summary

• Development of the website, “The analysis of the Centre’s www.borderireland.info, with its performance is a positive one. The objective of providing a portal for Centre has maintained, even information on and communication accelerated, its performance in: for cross-border co-operation on the - Growth in website traffic, up in all island of Ireland; indicators; • Production of a report on improving - Volume of research reports, government service delivery for publications, paper and grey minority ethnic groups in Northern literature; Ireland, Ireland and Scotland; - Numbers attending events, 1,297; 106 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

- Quality of national and international Clients’ Views speakers at Centre events; - Publicity achieved; “The Centre had carried out its - Finance, with income up by 55%; responsibilities properly and thoroughly. - Endorsement from political leaders. Typical comments were ‘very good, competent, a good experience’; ‘ran to “Clients of the Centre appraised its a high standard’; ‘bringing insights and work as more than competent, skills beyond what we would have got demonstrating the highest levels of from a commercial company’.” professionalism, coupled with “The Centre was considered to be commitment and invariable courtesy. professional, reliable and worked hard. Expert opinion likewise gave a high Its staff were ‘a pleasure to deal with’. assessment of the Centre’s performance, They did a ‘tremendous job’, provided admiring its quality, output, impact, ‘good support and service’, ‘they do relevance, value for money, working what they have to do – and more.’ All methods, expertise, vision, tact and the staff were good – ‘but that comes diplomacy.” from the values set down from the director at the top’. They were ‘efficient, External Opinion focused, interested and believed in what they were doing’.” [Drawn from a cross-section of persons “Clients were asked to identify problems known to the Centre, key clients, and that had arisen during the projects experts on North-South co-operation] carried out by the Centre and none could. Its staff were unfailingly “Comments were: ‘its projects are courteous and respectful at all times.” always very thorough’; ‘doing valuable “Several commented that the Centre work’; ‘doing a great job in challenging went beyond what was expected, circumstances’; ‘the director has an ‘treating the project pro-actively, excellent grasp of what is necessary to bringing fresh energy and commitment, move things along’; ’undertakes very finding imaginative ways to work worthwhile work’; ‘nothing more around problems’.” important than north-south reconciliation’; ‘good at publicising Expert Opinion events and sending out invitations to people interested in education’; ‘keep “The Centre was admired and respected up the good work’; ’contributes a for its commitment, energy, political significant amount of information to the even-handedness and ability to open wider policy arena’; ’does important doors to people who might not work and deserves more exposure’.” otherwise be in contact with each other. It has oiled the wheels of co-operation better than anyone else could, bringing 107 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.2

an ever wider range of people into co- Centre, one with which both operation – ‘not just border people, but communities in the North could feel as far south as Cork’.” comfortable, especially unionists.” “Its work was of high quality, “One organisation, whose work had substantial in nature, significant in been facilitated by the Centre, spoke quantity and relevant. What it did was enthusiastically of the Centre’s valuable, useful and impactful.” commitment to arranging cross-border “All had a sense that the Centre had contacts and promoting relationships performed well on minimal staffing and between groups that had hitherto little resources. ‘It is transparent, managing contact, making the comment that: an extensive programme, working ‘Once the relationship was established within tight timeframes and with a small and got going, the Centre walked number of staff’. “ quietly away. It didn’t try to hog the “Several commented on how Armagh limelight or build an empire but let them was a well-chosen location for the get on with it’.”

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Board Members and Staff

Dr Chris Gibson (chair), pro-chancellor, Queen’s University Belfast; chairman, Northern Ireland Civic Forum Chris Gibson Dr Pauric Travers (vice-chair), president, St Patrick’s College, Drumcondra

Dr Jane Wilde, director, the Institute of Public Health in Ireland

Professor Liam O’Dowd, director of the Centre for International Borders Research and professor of sociology at Queen’s University Belfast Pauric Travers

Paul Nolan, director, Institute of Lifelong Learning, Queen’s University Belfast

Stevie Johnston, director, Workers’ Educational Association (Northern Ireland)

Professor Ronaldo Munck, strategic theme leader for Patricia Clarke internationalisation, interculturalism and social development, Dublin City University

Richard Jay, senior lecturer in politics, Queen’s University Belfast

Professor Dermot Diamond, director, Science Foundation Ireland-funded ‘Adaptive Information Mairead Hughes Cluster’, National Centre for Sensor Research, Dublin City University

The director of the Centre is Andy Pollak, formerly religion and education correspondent of The Irish Times, and in the early 1990s coordinator of the Opsahl Commission.

Andy Pollak

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The Centre’s research manager is Dr Patricia Clarke, formerly a senior researcher with the London Ambulance Service, and its ICT leader is Joseph Shiels, a former software developer with Fujitsu and consultant with PriceWaterhouseCoopers.

The Centre’s finance manager and administrator is Mairéad Hughes. The director’s PA and events organiser is Patricia McAllister. The education project coordinator (Immigration, Emigration, Racism and Sectarianism Schools Project) is Marie Hoeritzauer. A new senior information officer, Mark Kirkpatrick, will begin work in April 2007.

Patricia McAllister Joseph Shiels Marie Hoeritzauer

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EXTRACTS FROM THE CENTRE’S 2005-2006 ANNUAL REPORT

The opinion of the independent auditors, PricewaterhouseCoopers LLP:

• The financial statements give a true and fair view, in accordance with United Kingdom Generally Accepted Accounting Practice, of the state of the charitable company’s affairs at 31 July 2006 and of its net incoming resources, including its income and expenditure for the year then ended; • and the financial statements have been properly prepared in accordance with the Companies (Northern Ireland) Order 1986, and • the information given in the Directors’ Report is consistent with the financial statements.

INCOME AND EXPENDITURE FOR THE YEAR ENDED 31 JULY 2006

2006 2005 Income and expenditure Notes £ £

Incoming resources Grants Receivable 300,986 278,598 Other income 317,011 295,671

Total incoming resources 617,997 574,269

Resources expended Direct charitable expenditure 574,824 545,433 Administrative expenses 9,427 12,471

Total resources expended 584,251 557,904

Surplus for the year 33,746 16,365

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BALANCE SHEET AS AT 31 JULY 2006

2006 2005 Notes £ £ Current assets Debtors 9 239,862 169,415 Cash at bank 200 200 240,062 169,615 Creditors: amounts falling due 10 (76,660) (39,959) within one year Net current assets 163,402 129,656

Funds Unrestricted 11 42,168 60,113 Restricted 11 121,234 69,543 163,402 129,656

NOTES

9 Debtors 2006 2005 £ £ Other debtors and prepayments 81,508 37,646 Amounts due from The Queen’s University of Belfast 158,354 131,769 239,862 169,415

10 Creditors: amounts falling due within one year 2006 2005 £ £ Accruals & deferred income 57,186 34,831 Other creditors 19,474 5,128 76,660 39,959

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11 Funds Balance at Balance at 1 August Incoming Resources 31 July 2005 expended resources 2006

££ ££ Restricted funds 300,986 (249,295) 121,234 69,543 Unrestricted funds 317,011 (334,956) 60,113 42,168 Total funds 640,262 (584,251) 129,656 163,402

Unrestricted funds are amounts which are expendable at the discretion of the Board in furtherance of the aims of the Company.

Restricted funds are amounts which are expendable only in accordance with the specified wishes of the sponsor. The restricted funds consist of grants and awards for specific projects or administrative functions carried out by the company.

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MAIN OFFICE

The Centre for Cross Border Studies 39 Abbey Street Armagh BT61 7EB Northern Ireland

Tel (028) 3751 1550 Fax (028) 3751 1721 (048 from the Republic of Ireland)

DUBLIN OFFICE

The Centre for Cross Border Studies Room QG11 Business School Dublin City University Dublin 9 Ireland

Tel (01) 7008477 Fax (01) 7008478 (00353-1 from Northern Ireland)

E-mail addresses: [email protected] Andy Pollak [email protected] Mairéad Hughes [email protected] Patricia Clarke [email protected] Joseph Shiels [email protected] Patricia McAllister [email protected] Marie Hoeritzauer

Websites: www.crossborder.ie www.borderireland.info

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