REPORT OF ASSISTANT COMMISSIONER PATRICK GOOD ON THE DISTRICT ELECTORAL AREAS COMMISSIONER’S PROVISIONAL RECOMMENDATIONS FOR MID AND EAST DISTRICT

September 2013

1

Contents Page

Introduction 3 6 DEA Ward Groupings 9 DEA Names 10 Summary of Recommendations 10 Conclusion 11 Appendix A: List of Written Submissions 12 Appendix B: List of Oral Representations

2

1. Introduction

The new Local Government Districts

1.1 Following a review of local government wards and districts in 2008/9 the Local Government (Boundaries) Order (NI) 2012 was made on 30 November 2012 establishing the boundaries and names of 11 new local government districts for Northern Ireland and their constituent wards. The new districts, as set out in the 2012 Order, are:-

• Antrim and • Armagh, and Craigavon • • Causeway Coast and Glens • Derry and Strabane • Fermanagh and Omagh • and • • Mid • Newry, Mourne and Down • North Down and

1.2 The Belfast local government district comprises 60 wards; Armagh, Banbridge and Craigavon district and Newry, Mourne and Down district both contain 41 wards; and the remaining 8 districts have 40 wards each.

Review of District Electoral Areas

1.3 The Secretary of State for Northern Ireland, the Rt. Hon. Theresa Villiers MP, appointed Richard Mackenzie, CB, as District Electoral Areas Commissioner for Northern Ireland with effect from 21 January 2013. His task was to make recommendations for the grouping together of the wards in each of the eleven new local government districts into District Electoral Areas (“DEAs”) for the purpose of local government elections.

Legislation

1.4 The legislative provisions concerning the appointment and function of the Commissioner, the procedures to be followed in reviewing DEAs and the rules in accordance with which recommendations are to be made are contained in the District Electoral Areas Commissioner (Northern Ireland) Order 1984 (“1984 Order”), as amended by the District Electoral Areas Commissioner (Northern Ireland) (Amendment) Orders of 2007 and 2009 and the District Electoral Areas Commissioner (Northern Ireland) Order 2012.

1.5 Schedule 3 to the 1984 Order, as amended, prescribes four rules in accordance with which recommendations of the Commissioner are to be made. These are:-

1. No ward shall be included partly in one electoral area and partly in another. 2. Each electoral area shall consist of not less than five, and not more than 3

seven, wards. 3. Each ward in an electoral area shall have at least one boundary in common with another ward in that area, except where the ward consists of an island. 4. A name shall be given to each electoral area.

1.6 In publishing his Provisional Recommendations in May 2013, the Commissioner noted that the 1984 Order does not provide any guidance as to the factors which could or should be taken into account in formulating proposals for DEAs or whether the number of wards to be included in any electoral area should be 5, 6 or 7. In the absence of such guidance, and for the reasons set out at paragraphs 3.2 to 3.7 of the Provisional Recommendations report, he considered it reasonable to establish a range of factors which would inform his approach to the grouping of wards as DEAs. The approach which he adopted was, where possible, to have regard to the following:

• the use of physical features such as loughs, estuaries, rivers, hill ranges, and major roads as DEA boundaries;

• the creation of distinct urban and rural DEAs;

• the inclusion of complete settlements within a DEA;

• the creation of geographically compact DEAs;

• the creation of DEAs where the ratio of electorate to each councillor is not more than 10% from the overall ratio for the district as a whole.

The Commissioner also felt that it would be unreasonable to ignore the existing DEA framework altogether, since it has been place for many years. However, he recognised that there has been a substantial change in the ward architecture of Northern Ireland as a result of the Local Government (Boundaries) Order (NI) 2012.

1.7 The procedure to be followed in a review of District Electoral Areas (DEAs) is set out in Schedule 2 to the 1984 Order, as amended, and provides among other things for:

•an eight week public consultation period for the submission of written representations with respect to the Commissioner’s provisional recommendations for electoral areas in a district; and

•the holding of a public inquiry where representations are received objecting to the Commissioner’s provisional recommendations for a district. If a district council or not less than 100 electors make an objection, an inquiry must be held, otherwise inquiries may be held at the Commissioner’s discretion.

Provisional Recommendations

1.8 The Commissioner’s provisional recommendations for the grouping of wards into District Electoral Areas, together with his recommendations for their names, were published on 2 May 2013 for an eight week public consultation period ending on 27 June 2013. A total of 30 representations were received in relation to his proposals. 4

The Commissioner’s provisional recommendations, including maps, and the representations received may be viewed on his website.

Public Inquiries

1.9 On the basis of the representations received, the Commissioner decided that nine public inquiries should be held to consider objections to his proposals. No representations were received in relation to the Causeway Coast and Glens district and the only objections to the proposals for Derry and Strabane district were to the proposed name of the Rosemount DEA. No public inquiries were deemed necessary in those districts. Details of the nine public inquiries were published in advance in a number of daily and provincial newspapers as well as on the Commissioner’s website.

Appointment of Assistant District Electoral Commissioners

1.10 The legislation provides that the Commissioner may ask the Secretary of State to appoint one or more Assistant Commissioners to inquire into, and report on, such matters as the Commissioner thinks fit. Accordingly, the Secretary of State for Northern Ireland, the Rt. Hon. Theresa Villiers MP, appointed me as Assistant Commissioner on 16 July 2013.

1.11 I was directed by the Commissioner to preside over the public inquiry into objections to his provisional recommendations for the DEAs for the Mid and East Antrim District. The inquiry was held in the Rosspark Hotel, Kells on Thursday, 5 September 2013. Five people made oral representations, one of whom had already submitted views in writing during the consultation period. All participants were given the opportunity to furnish their views and to comment on the views expressed by others. A list of the written representations received is at Appendix A of this report. Details of those who made oral submissions are at Appendix B. A transcript of the inquiry can be viewed on the Commissioner’s website.

Content of Report

1.12 This report considers the written and oral representations received in relation the proposed groupings of wards into DEAs for the Mid and East Antrim District and on the recommended names for the DEAs. It details support for, objections to and counterproposals made in relation to the Commissioner’s provisional recommendations and presents my conclusions and recommendations.

5

2. District Electoral Areas Ward Groupings

2.1 DEA

(a) Submission of Mr Eugene Reid, Chairman of the Social Democratic Labour Party, Ballymena Branch.

In commenting upon the Commissioner’s Provisional Recommendations, Mr Reid expressed broad support for the already submitted objections of the Alliance Party and of Mr Michael Moriarty.

In respect of Ballymena Mr Reid acknowledged the problem of there being eight urban wards but was not convinced that the Provisional Recommendations represented the best solution. He submitted that Academy ward penetrated into the urban area as far as the Pentagon and included bus, train and police stations, Ballymena Academy and the offices of the Borough Council. He believed that the inclusion of Academy ward in the rural DEA of Bannside was inappropriate. Given that Harryville enjoyed the character of a village in its own right Mr Reid suggested that & Harryville ward should be placed in Bannside DEA with Academy being transferred to Ballymena DEA.

Mr Reid maintained that the Galgorm is a rural village and while it had changed over the years fitted much more readily in the rural setting of the Bannside DEA.

(b) Submission of Mr Philip Burnside, Chairman of the Alliance Party North Antrim Parliamentary Constituency.

In objecting to the Provisional Recommendations Mr Burnside endorsed the written submissions of the Alliance Party concerning Ballymena DEA namely: • That Ballymena DEA should gain Academy and Galgorm wards from Bannside DEA. • That Ballee & Harryville and Ballykeel wards should be placed in Braid DEA. • And Kirkinriola ward should move from Braid DEA to Bannside.

Mr Burnside was of the opinion that the Braid River represented a natural divide in respect of the division of Ballee & Harryville and Ballykeel from the remainder of the town of Ballymena.

Mr Burnside noted that Galgorm was contiguous to Ballymena and in his view had traditionally been associated with the town.

(c) Councillor James McClean, UUP, Ballymena Borough Council

Councillor McClean expressed support for the Provisional Recommendations in respect of the wards of the proposed Ballymena DEA. Councillor McClean regarded Ballee & Harryville ward as a built-up urban area and an integral part of Ballymena. He did not regard the river as a significant dividing feature given its meandering nature. 6

Councillor McClean opposed the suggestion of the Alliance Party that Kirkinriola be moved into Bannside DEA as historically it was part of the area of Braid.

(d) Mr Keith Turner, Chairman of Kells and Connor Community Improvement Association.

Mr Turner expressed his full support for the proposed boundary changes that placed Kells ward within Braid DEA. He regarded the movement from Ballymena South DEA as a positive step for the two distinct villages of Kells and Connor. He believed that inclusion within Braid provided an opportunity for Kells and Connor to be identified as rural villages rather than as part of Ballymena.

(e) Mr Michael Moriarty.

Mr Moriarty furnished a written objection to the Provisional Recommendations proposing that Academy ward be transferred to Ballymena DEA and that Ballee & Harryville ward be transferred to Braid DEA.

Conclusion

An examination of the town of Ballymena discloses that the urban area includes some eight wards and therefore with a maximum permitted configuration of seven wards any DEA must exclude part of the urban area.

Collectively the objections required one or more urban wards being removed from Ballymena and replaced by wards of a similar urban nature.

While there was some support to draw Galgorm into the proposed Ballymena DEA I am of the opinion that Galgorm is a ward which remains distinguishable from Ballymena despite the fact that it is contiguous with the town.

In the circumstances I believe that Galgorm ward should remain within the proposed Bannside DEA.

An examination of Academy ward discloses that it does not reach as far into Ballymena as the Pentagon. The eastern boundary of Academy ward is the railway line/Carninny Road/ Road. While Academy lies within the urban area it falls short of the discernable town centre of Ballymena.

However Academy does make up a part of the western side of Ballymena. I note that Academy includes not insignificant green space, largely centred around Ballymena Academy and enclosed on three sides by urban development.

Ballee & Harryville ward is situated on the southern side of the Braid River with significant green space within its southern portion albeit beyond the urban area.

In considering the desirability of creating distinct urban and rural DEAs I am inclined 7

to the view that the inclusion of Academy ward within the proposed Ballymena DEA and the transfer of Ballee & Harryville to the proposed Braid DEA would better achieve the rural/urban distinction.

Recommendation

That Academy ward be transferred from the proposed Bannside DEA to Ballymena DEA.

That Ballee & Harryville ward be transferred from the proposed Ballymena DEA to Braid DEA.

2.2 Knockagh, Carrick Castle, Coast Road, Lough, District Electoral Areas.

In a written submission Mr Michael Moriarty proposed a reconfiguration to prevent a division of the towns of Larne and .

In summary Mr Moriarty suggested:

• that and Curran & Inver wards be transferred from DEA to Coast Road DEA. • that Larne Lough DEA be extended to take in Woodburn ward from Knockagh DEA and and Victoria wards from Carrick Castle DEA. • that Knockagh DEA should include the remainder of Carrick Castle DEA being the Boneybefore, Castle and Love Lane wards. • that the proposed Carrick Castle DEA be dispensed with.

Mr Moriarty’s proposed transfer of Curran & Inver and Kilwaughter wards to the Coast Road DEA sought to prevent the town of Larne being divided between the Coast Road and Larne Lough DEAs and thereby being incorporated in one DEA.

Whilst acknowledging that Kilwaughter ward is rural in nature Mr Moriarty stated that most of the population of that ward is located in the urban areas adjoining the town of Larne.

Mr Moriarty proposed that Knockagh DEA would be made up of Gortalee, , Burleigh Hill, Sunnylands, Boneybefore, Castle and Love Lane wards which include all of the urban areas of Carrickfergus save Victoria ward.

As an alternative Mr Moriarty suggested that the proposed Knockagh DEA might comprise the wards of Burleigh Hill, Sunnylands, Boneybefore, Castle, Love Lane and Victoria resulting in a compact DEA incorporating the town of Carrickfergus.

The proposed Larne Lough DEA would then be made up of the wards of , & , Whitehead South, Kilroot, Gortalee, Woodburn and Greenisland.

The overall objective sought by Mr Moriarty is to place the towns of Carrickfergus and Larne each within one DEA.

8

Conclusion

In framing his Provisional Recommendations the Commissioner has had regard to the inclusion of complete settlements within the DEA. However the inclusion of significant urban settlements within one DEA is not always possible or desirable. The problem of creating a single town DEA is illustrated by the case of Carrickfergus. Mr Moriarty’s first mentioned re-arrangement excludes the largely urban Victoria ward from his suggested Knockagh DEA. Mr Moriarty’s alternative proposal for Knockagh DEA, which includes Victoria, leaves out those portions of the eastern side of Carrickfergus situated in south western part of Kilroot ward. This is also the case with Mr Moriarty's first re-arrangement.

Insofar as the Provisional Recommendations seek to create two DEAs for both Larne and Carrickfergus, I believe that this achieves a desire to create a sound urban focus for the respective Districts.

Therefore, and notwithstanding the attraction of Mr Moriarty’s overall approach, I am not persuaded that it is able to achieve the aims within the Commissioner’s guidelines. On balance I am satisfied that the Provisional Recommendations represent a desirable outcome in balancing the considerations within paragraph 3.6 of the Provisional Recommendations.

Recommendation

I recommend no change in respect of the ward groupings of Knockagh, Carrick Castle, Coast Road and Larne Lough DEAs.

3. DEA Names

The Democratic Unionist Party made a written submission suggesting that as the proposed Coast Road DEA contains a significant part of the town of Larne that the name of the town should be recognised in the name of the DEA. Possible alternative names were Larne & Coast Road and Larne North & Coast Road.

In its written submission Larne Borough Council asked that consideration be given to amending the proposed name of Larne Lough DEA to Larne South and that of Coast Road to Larne North. Such amendment would ensure that the name of Larne appears within both DEAs which is absent in the current proposal.

Conclusion

While a significant proportion of the town of Larne falls within the Coast Road DEA that DEA comprises a somewhat larger area extending just north of Garron Point. This proposed DEA includes a lengthy stretch of the Antrim Coast Road. The name of the Coast Road is known throughout, and well beyond, the area of East Antrim and is readily distinguishable as to its location. In the circumstances I believe it to be an appropriate name for the proposed electoral area.

Further, the name of Larne Lough coincidently includes not only that of the town but also of the Lough and while that may not fully answer the desire of Larne Borough Council it remains, in my opinion, an appropriate name for the proposed DEA. 9

Recommendation

I recommend no changes to the names of the proposed DEAs.

4. Summary of Recommendations

That Academy ward be transferred from the proposed Bannside DEA to the proposed Ballymena DEA.

That Ballee & Harryville ward be transferred from the proposed Ballymena DEA to the Braid DEA.

I recommend no change in respect of the ward groupings of Knockagh, Carrick Castle, Coast Road and Larne Lough DEAs.

I recommend no changes to the names of the proposed DEAs.

5. General Issues

Councillor McClean expressed objections to the 11 council model.

Mr Roy McCune, Chairman of East Antrim UUP, supported Councillor McClean’s submission in this regard and further objected to the absence of the name of Carrick within the wards comprising Carrickfergus.

A written submission was received from East Antrim Constituency Association of the Alliance Party objecting to the name of the Maidens ward.

These matters were not within the remit of the Inquiry.

Conclusion

6.1 I should like to take this opportunity to express my sincere thanks to all those who submitted written representations and attended the public hearing for the effort which they put into preparing their evidence and for their willingness to engage in the proceedings.

6.2 My thanks go also to each of the members of the DEAC secretariat who supported me in conducting the public inquiry and in preparing this report.

Patrick Good Assistant District Electoral Areas Commissioner 29th September 2013

10

Appendix A

LIST OF WRITTEN SUBMISSIONS

Alliance Party of Northern Ireland

Alliance Party of Northern Ireland (East Antrim Constituency Association)

Democratic Unionist Party

Larne Borough Council

Michael Moriarty

11

Appendix B

LIST OF ORAL SUBMISSIONS

Eugene Reid, Chair of SDLP, Ballymena Branch

Philip Burnside, Alliance Party of Northern Ireland (North Antrim Constituency Association)

Councillor James McClean, UUP, Ballymena Borough Council

Keith Turner, Chair of Kells and Connor Community Improvements Association

Roy McCune, UUP, Chair of East Antrim Constituency Association

12