THE JOURNAL OF CROSS BORDER STUDIES IN IRELAND NO.7 SPRING 2012 THE JOURNAL OF CROSS NO.7 SPRING 2012 £8.50/€10 BORDER STUDIES IN IRELAND with information about the CENTRE FOR CROSS BORDER STUDIES (including 2011 annual report)
featuring an interview with the Taoiseach, Enda Kenny TD THE JOURNAL OF CROSS BORDER STUDIES IN IRELAND
No. 7 Spring 2012
Cover illustration: The Falls, Belfast 2011 by Hannah Starkey, @ the artist, courtesy Maureen Paley, London
The Centre for Cross Border Studies is part-financed by the European Union’s European Regional Development Fund through the EU INTERREG IVA Programme managed by the Special EU Programmes Body
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 1 The artist Hannah Starkey explains the cover picture, The Falls, Belfast 2011.
This is a scene I photographed while visiting the area where I grew up. I used to help my mother in the Andy Town market and remember the terrible poverty and desperate circumstances people were living in. My mother would help where she could, allowing people to buy on credit and making sure they had their school uniforms and other essentials. She taught me life lessons in empathy and compassion which I now employ in my art. The mural wall references the romantic idealism and political reality of West Belfast. The 10-year-old girl is isolated on the rock, a symbol that represents the stifling political situation and lack of economic investment in these areas. Belfast may look great now, but the working class communities who suffered the most are still lacking good infrastructure and facilities for their children. I met wonderful kids with so much potential but nowhere to play. After the ‘Troubles' I would have thought that it would be possible to find funding to help such a community to turn itself around. The will is definitely there, but not the money. The picture is asking: What is the legacy after 30 years of conflict?
Editor: Andy Pollak Picture research: Patricia McAllister
ISBN: 978-1-906444-30-3 The staff of the Centre for Cross Border Studies: From left to right (front row): Andy Pollak, Ruth Taillon, Annmarie O'Kane: (back row) Mairead Hughes, Patricia McAllister, John Driscoll (Director of International Centre for Local and Regional Development), Eimear Donnelly, Joe Shiels. CONTENTS
A Word from the Chair 05 Helen Johnston
‘As an island, let us show the world what we can really do’ 13 Interview on North-South cooperation with the Taoiseach, Enda Kenny TD
The Agreement Generation: Young People’s views on the cross-border 23 relationship Aoibhín de Burca and Katy Hayward
Rethinking Regional Renewal: Towards a cross-border Economic 37 Development Zone in Ireland John Bradley and Michael Best
North-South Research Collaboration: a drop in the international ocean 59 Brian Trench
A Paradox in Irish attitudes: Garret Fitzgerald and the 71 North-South relationship Eoin Magennis
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 3 Cross-Border Hospital Planning in Ireland: learning from local 85 success stories Shane McQuillan and Vanya Sargent
Cross-Border Undergraduate Mobility: an obstacle race that the 99 students are losing? Andy Pollak
Index of Journal articles, 2006-2012 117
INFORMATION ABOUT THE CENTRE FOR CROSS BORDER STUDIES 121
INICCO projects 129
Universities Ireland 140
SCoTENS 145
International Centre for Local and Regional Development (ICLRD) 150
Past research projects 169
Conferences 179
What they say 185
Evaluation quotes 188
Extracts from the Centre’s 2010-2011 Financial Statements 195
Contact details 197
The views expressed in this journal are the authors’ own and do not necessarily reflect those of the Special EU Programmes Body or the European Commission.
4 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 A WORD FROM THE CHAIR
Helen Johnston
It gives me great pleasure to write my first foreword as chair of the Centre in this, the seventh Journal of Cross Border Studies in Ireland. Since its establishment 13 years ago the Centre has seen many changes in the political and economic climate on the island of Ireland. The Centre was established in the aftermath of the Helen Johnston 1998 Good Friday/Belfast agreement. Optimism was in the air, the economy was booming and there was renewed vigour in forging North-South co-operation at political, administrative, business and community level. While, thankfully, we continue to have peace on the island of Ireland, the context within which the Centre is now operating is very different from its earlier years.
The focus in both parts of the island is can provide a valuable resource in this now on addressing the economic crisis. regard. Over the years the Centre has The Republic of Ireland’s Programme built up a wealth of evidence on cross for Government states its support border synergies in areas as diverse as for North-South co-operation and telecoms technologies, health services, the Northern Ireland Executive’s draft education, animal disease, local Programme for Government refers to government, regional economics and the importance of formal structures and sustainable development to name but a day-to-day contact between the two few. Government departments, public administrations. However the reality in and private agencies, and NGOs can these economically straitened times is look to the Centre to assist in informing to look first to what can be done in our their work and in researching the own jurisdictions before we look across potential of cross border linkages the border. By lifting our heads up, and partnerships. nevertheless, we may see the economic, social and community opportunities and More Europe-facing benefits of greater co-operation across the border, especially if we build this in Over the past 12 months the Centre to our day-to-day work. has been positioning itself – through publishing new tools like the Impact The Centre for Cross Border Studies Assessment Toolkit for Cross Border
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 5 Cooperation, active membership of the are about to be completed. The second Transfrontier Euro-Institut Network (TEIN) report of the cross-border hospitals and in other ways – to do more work in study – entitled Exploring the Potential of the broader European field and to Cross-Border Hospital Planning on the re-brand itself as a ‘Europe-facing’ Island of Ireland: A Prototype Modelling institute. In this context, the highlight of Framework – was launched in Belfast the past year has been the publication in December 2011. It examined the and roll-out – in the form of training potential of cross-border services in workshops – of its new Impact five areas: orthopaedic surgery, ENT, Assessment Toolkit for Cross Border paediatric cardiac surgery, cystic fibrosis Cooperation, which was widely and and acute mental health. enthusiastically welcomed for its timeliness and usefulness in both parts The Centre’s sister organisation, of Ireland and by a range of EU agencies the International Centre for Local and departments such as the Special and Regional Development (ICLRD) EU Programmes Body in Belfast, continued its excellent work through DG Regional Policy in Brussels and the third project, the Cross-border INTERACT in Bratislava. Deputy Director Spatial Planning and Training Network Ruth Taillon, who led this project along (CroSPlaN). A particular success with colleagues Joachim Beck and here has been its work in training Sebastian Rihm from the Euro-Institut local authority officials in the three in Germany, was in great demand as a cross-border regions – the eastern, trainer in Ireland, North and South, and north-western and central border Scotland, as well as travelling to speak regions – in planning for future cross- about the toolkit in Brussels, Rome border development. The most and Valencia. outstanding output of these executive training courses was the signing of At time of writing the other four so-called a Memorandum of Understanding INICCO projects – funded under the between Newry and Mourne District 2009-2012 INTERREG IVA programme Council and Louth Local Authorities through the Special EU Programmes in Brussels in March 2011 to allow Body – have either been completed or them to work together formally on a
6 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 range of environmental, energy, tourism information on social security, tax, and regeneration projects. European welfare, healthcare, pensions and other Commission officials hailed this as the practical issues for people moving most advanced cross-border instrument across the border to live, work, study of its type in the EU. and retire. In the autumn of 2011 its monthly usage was running at over The fourth project was the Border 9,000 visits and nearly 20,000 page Region Economy research study, led by views, well up on previous years. It two internationally eminent economists, also ran several well-attended cross- Dr John Bradley, formerly of the border business information events Economic and Social Research Institute with the IBEC-CBI Joint Business in Dublin, and Professor Michael Best Council in Monaghan, Letterkenny and of University of Massachusetts Lowell Manorhamilton. and Cambridge University. This saw a highly successful ‘emerging findings’ The Centre’s ‘house’ website also conference in November 2011 and a went from strength to strength, with final report - Cross-Border Economic a particularly dramatic 20,000 rise in Renewal: Rethinking Regional Policy in monthly page views, so that its usage Ireland - ready for publication in early has now risen tenfold since it started in March 2012. The conference concluded 2003. The four other CCBS websites with a proposal for a special 'Border have also maintained or increased their Development Zone' to address the usage levels: particular economic weaknesses (and www.borderpeople.info (see above); occasional strengths, including some www.borderireland.info (particularly very dynamic SMEs) of the Irish cross- its Media Centre’s monitoring of cross- border region. border news coverage); http://scotens.org (Standing The fifth EU-funded project was the Conference on Teacher Education Border People cross-border mobility North and South) and information website, which continued www.universitiesireland.ie to provide – for the fifth year – vital (Universities Ireland).
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 7 The fourth and fifth meetings of the educationalist Sir Bob Salisbury. In North South Research Forum, which October over 130 people came from 12 brings researchers, policy-makers and countries to an international conference funders together to discuss cross- entitled ‘Cross-Border Training and border matters of mutual interest, Impact Assessment in Ireland and were held in Derry and Belfast in June Europe’ at which the CCBS’s new and December 2011. They were on Impact Assessment Toolkit was cross-border peacebuilding and health launched by Dr José Antonio Ruiz de cooperation. The Centre has also Casas, a senior official from DG REGIO become one of two Northern organisers in Brussels. In November another (with W5 in Belfast) of the all-island 120 people attended the ‘emerging Debating Science Issues schools findings’ conference of the Border debating competition. Region Economy project under the title ‘Reviving the Border Region Economy in Other research work completed and/ a time of Peace, Devolved Government or commissioned in the past year and International Recession.’ This was has included a study of North-South addressed by luminaries such as former undergraduate flows for the IBEC-CBI IDA head Padraic White and former Joint Business Council and the EURES Director of the Confederation of Irish Cross-Border Partnership; a review of Industry, Liam Connellan. North-South postgraduate flows for the Irish Department of Education and Irish and European networks Skills; a scoping study on the potential of ‘value for money’ North-South SCoTENS, and the Centre’s public service cooperation for the Irish management of it, is widely recognised Department of Foreign Affairs (by Dublin in the education field as an example of consultant Michael D’Arcy); and a study a real North-South cooperation success for the Joseph Rowntree CharitableTrust story. A September 2011 evaluation of on how the JRCT’s work in the Republic eight years of SCoTENS work by a team might complement, through cross- from Oxford University’s Department of border cooperation, its work in Education was glowing: ‘The findings Northern Ireland. of our evaluation are overwhelmingly positive. Despite limited and precarious Three large and successful conferences funding, significant dependence on the were organised in the autumn of 2011, goodwill of volunteers and the support all of them in Cavan. In September of a paid secretariat with myriad other the Standing Conference on Teacher responsibilities, it has achieved an Education North and South (SCoTENS) enormous amount...Many of those held its ninth annual international we spoke to believed that the majority conference on promoting literacy and of the initiatives SCoTENS has led – numeracy, with keynote speakers conferences, research projects, the Professor Terezinha Nunes from student exchange programme – would Oxford University, Irish Chief Inspector simply not have happened without Dr Harold Hislop and the leading British the organisation: its leadership and
8 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 administration were vital.’ The number of Understanding. ICLRD also published SCoTENS-funded research, conference new research reports on cross-border and exchange projects rose to nearly 80 river basin management and functional by March 2012. territories and (in collaboration with the All-Island Research Observatory – AIRO Universities Ireland (UI), another – at NUI Maynooth) highly innovative CCBS-run higher education network, all-island research tools on housing ended one major project – the Irish- monitoring and accessibility mapping, African Partnership for Research and an all-island deprivation index. Capacity Building (IAP) – in 2011, with a final workshop in Dar es Salaam in The Transfrontier Euro-Institut Network September. The following month it (TEIN), which brings together cross- started a new and completely different border research and training institutes project – a UI Historians Group to reflect and university departments dealing on the 1912-1923 period – which has with cross-border cooperation in 10 brought together outstanding scholars European border regions – and of which from the island’s nine universities to plan the Centre for Cross Border Studies is a programme of research scholarships, a leading member – held meetings over archival access, public conferences and the past 12 months in Villach (Austria), other activities around that revolutionary Trinec (Czech Republic), Armagh and era in modern Irish history. Five young Banyuls (French Catalonia). TEIN has people were awarded UI North/South submitted an application for further postgraduate scholarships, which this EU Leonardo programme funding year were co-sponsored by ESB Electric to adapt and develop a number of Ireland and focused on energy and toolkits in intercultural cross-border engineering subjects. project management and moderation of meetings which have been pioneered The International Centre for Local and in the Upper Rhine Franco-German- Regional Development (ICLRD) – for Swiss region. TEIN is also involved which the Centre provides office and in organising a major symposium administration support – held a very on capacity-building and impact successful annual conference in Dundalk assessment in Brussels in July 2012 in January 2012 entitled ‘Planning for a along with the French Government’s New Future: Can planning and cross- cross-border cooperation agency MOT border cooperation deliver change and the Association of European in Ireland and Europe?’ It ran highly Border Regions. regarded executive training programmes for local councillors and officials in At time of writing, the Centre, in close the North West and central border collaboration with the ICLRD along with region on spatial planning and cross- a range of other partners, is preparing border cooperation, and saw similar a follow-up funding application to the work in the Newry and Mourne-Louth INTERREG IVA programme (2013- region rewarded with the signing of 2015). This package of proposals will an unprecedented Memorandum of build on the research findings and
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 9 training and impact assessment tools The core partnership with the ICLRD of INICCO Phase 1 and its five projects. – and particularly with John Driscoll Its proposed outputs will be a mixture of and Caroline Creamer – has been new research reports and publications; strengthened and deepened in the advocacy seminars (for example on past year. the Europe 2020 strategy); budget, evaluation and mentoring tools, and The staff are purposefully supported the development and dissemination of by a very committed board. We bade new tools in spatial planning, shared farewell to outgoing Chair Chris Gibson services and other areas, including this year and to Dermot Diamond who updating the ICLRD’s all-island digital is on sabbatical. During his eleven and atlas and deprivation index using the a half years as chair of the Centre Chris 2011 Census figures in both jurisdictions oversaw its development, steering (with AIRO). There will be new research it from very small beginnings to the projects into the potential of a cross- reputable organisation it is today. We border development zone in the Irish wish Chris all the best in his future border region and shared services; endeavours. We welcome to the Board a new training and capacity-building Ann McGeeney, former director of the dimension to Border People; work with Cross Border Centre for Community the Cooperation and Working Together Development at Dundalk Institute of (CAWT) cross-border health network Technology, who brings a breadth on mapping acute specialities in Irish and depth of expertise and practical and Northern Irish hospitals; and more experience in cross-border working, executive training programmes with particularly at community level. border region local authorities, led again ------by ICLRD. As usual we have to thank a long list of financial supporters, partners In addition, the Centre and the Euro- and advertisers. Much of the current Institut are preparing a joint proposal, programme of work is funded by based on the methodology of the Impact INTERREG IVA and we particularly Assessment Toolkit for Cross Border acknowledge the support, advice and Cooperation, to the EU’s territorial encouragement of the officials of the cooperation training agency, INTERACT, Special EU Programmes Body. We must to undertake a review of INTERREG also single out for special thanks the programmes throughout Europe in the Irish Department of Education and Skills context of the new EU Cohesion Policy. for its continuing financial support in very difficult times. Overall, it has been a very busy year for the Centre, with new avenues Financial and other support for the opened, particularly at European level. Centre’s associated organisations The quality and quantity of the work – Universities Ireland, the Standing achieved is a tribute to Andy and his Conference on Teacher Education very able staff team of Ruth, Mairéad, North and South (SCoTENS) and Joseph, Patricia, Eimear and Annmarie. the International Centre for Local
10 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 and Regional Development (ICLRD) the North South Ministerial Council – has again come from the Northern Joint Secretariat, with special thanks to Ireland Department for Employment Northern Joint Secretary Mary Bunting and Learning, the NI Department and Acting Southern Joint Secretary of Education, the Irish Department Margaret Stanley; the Department of of Education and Skills, the Higher the Taoiseach and the Department of Education Authority, the NI Department Foreign Affairs; the nine universities, for Regional Development, the Irish with particular thanks to the current Department of the Environment, Universities Ireland chairman, Professor Community and Local Government, and Michael Murphy, President of University the International Fund for Ireland. College Cork; the nine colleges of education and 26 other institutional We would also like to express subscribers to SCoTENS, with particular our gratitude to the various other gratitude to the SCoTENS co-chairs, organisations which have partnered the Dr Tom Hesketh, Director of the Centre over the past 12 months: notably Regional Training Unit in Belfast,
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JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 11 and Professor Teresa O’Doherty of Again we have to thank our advertisers, Mary Immaculate College, Limerick; many of them cross-border bodies and the institutions which make or companies themselves, who have up the International Centre for faithfully supported this Journal in Local and Regional Development recent years, and have advertised (ICLRD): the Institute for International again this year despite often severe Urban Development in Cambridge, financial constraints. They are Safefood, Massachusetts; the National Institute for Tourism Ireland, InterTradeIreland, Regional and Spatial Analysis (NIRSA) Weber Shandwick, Cooperation Ireland, at the National University of Ireland Armagh City Hotel (Mooney Hotel Maynooth; and the School of the Built Group), FPM Chartered Accountants, Environment at the University of Ulster. Leslie Stannage Design (who design all the Centre’s publications and reports), A specially warm ‘thank you’ to our Armagh City and District Council, friends, colleagues and close partners in EURES Cross-Border Partnership, John the ICLRD: Director John Driscoll (who McMahon and Co and the Radisson is also Vice-President of the Institute Blu Farnham Estate Hotel in Cavan for International Urban Development): (where we held three highly successful Deputy Director, Caroline Creamer of conferences in autumn 2011). NUI Maynooth, and Assistant Director Dr Neale Blair of University of Ulster.
12 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 ‘AS AN ISLAND, LET US SHOW THE WORLD WHAT WE CAN REALLY DO’: INTERVIEW ON NORTH-SOUTH COOPERATION WITH THE TAOISEACH, ENDA KENNY TD
Enda Kenny TD
How are Fine Gael-Labour policies on North- South Cooperation different from those of the last government? Which North-South areas are you prioritising in these financially difficult times?
First of all, it’s not that you change direction completely in the context of Northern Ireland when there’s a Enda Kenny TD change of government – obviously everybody stands on the same platform here in terms of the Good Friday Agreement and the St Andrews Agreement and the implementation of those agreements. I have to say that there is a very strong relationship between the Government here and the Executive and the Assembly in Northern Ireland. What we are all really aiming for is a prosperous Republic and a prosperous Northern Ireland, where people are working at job and career opportunities in their own location, and as a consequence you continue to build the peace between communities which is so important.
While you have got peace at a political issues that both governments in Dublin level which has been so hard won, and Belfast can deal with together there is always the need for vigilance in from a business perspective. Tourism, communities, because unemployment or education and health and cross-border lack of facilities can aggravate tensions. activities in terms of business are That is why the strengthening of the always priorities and will continue to economy is so important: for example, be so. Agriculture is another area: our there has been talk of corporate tax agri-food exports are over €9 billion, changes in Northern Ireland, and which we hope to raise to €12 billion by we have joint problems with diesel 2014 – and clearly the Northern Ireland smuggling and laundering. These are economy has much to gain from the
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 13 powerhouse that is the South in cooperation has been a quiet success that regard. story, but it is been very hard won and it has to be worked on all the time. Would you agree that North-South cooperation has been one of How have the economic recession the quiet success stories of the and the government’s financial Northern Ireland peace process? problems affected North-South What do you think are its main cooperation? achievements over the past decade and a half? We have had to limit the money to the A5. Back in the days of the Celtic Tiger, It has been one of the quiet successes. there was talk of committing €400-500 I was Minister for Trade in the nineties million for that road, but the expenditure and before that a Junior Minister back ceilings that have been set by the in the eighties. And even in those times Government here meant that we have of trouble, you had continuous trade had to reduce our spending with serious between North and South, with people money on such major infrastructural from the North testing their products projects – meaning that we have had in the bigger market of the South, and to make an allocation of €50 million in people from the Republic testing their 2015-2016. I went up to Belfast and products in Northern Ireland before explained that to First Minister Robinson selling them to the bigger British market. and Deputy First Minister McGuinness, With the peace process cooperation has and they were able to re-configure become formalised, if you like, and the the construction of the road into three present normality of relations speaks sections to cater for that allocation in for itself. 2015-2016.
I have made this next point on many We were able to continue to fund the occasions: that the visit of the Queen radiotherapy unit in Altnagelvin, which I here was the closing of the circle of think is an important signal about health history. It was begun by Mary Robinson, in a cross-border sense. We are also followed through by Mary McAleese, looking at issues of tourism: the Irish with her ‘building bridges’ theme. Open is going North this year, and with Both these influential women worked the three Open champions you now towards the visit by Her Majesty, the first have from Northern Ireland, that is a in a hundred years, and this restored big signal on a global scale. I had the normality formally – and that is what privilege of playing with young Rory you would expect the Heads of State McIlroy last year during the Irish Open of two neighbouring, friendly states to in Killarney. do, to visit each other and to be well received and generously applauded and I try to see things on a cross-border to create the current sort of harmonious basis all the time. When this comes up environment. This is perfectly normal. in the North South Ministerial Council, I So like the Queen’s visit, North-South encourage the Ministers and Ministers
14 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7
of State here to be very engaged with But it is also important that in the House the people in Northern Ireland. One – the Oireachtas – we speak about of the things I stressed in London 10 these things when it is appropriate, days ago, when speaking to the British at Question Time or whenever. I Prime Minister, David Cameron, was to understand the tensions that can arise say that we should keep encouraging and it is absolutely critical that politicians people there in their work to build don’t forget the importance of keeping good relationships for the future, and connections very much alive – both we did agree on keeping our regular between North and South and between connections with the communities in the communities in Northern Ireland – the North. I was in the Short Strand in and to encourage business and trading East Belfast some time ago, and you and leisure links and all of these links could see the evidence of that cross- that help the peace process. community building: where people were originally very polarised, now How do you work in this area with there was really strong work from both DUP ministers in the Executive, communities going on, with people who obviously might prefer that saying this is the path for the future. You were was as little North-South have to raise young people with those cooperation as possible? objectives in mind: to keep working together for mutual understanding. I think that First Minister Robinson has become very much focused on his job Is there a danger of both politicians as First Minister, and on his perspective and people in the South turning in on the island economy – not to mention on themselves during this period the challenges that the Executive face of recession and forgetting about in Northern Ireland. Clearly his ability the peace that was so hard won in to travel with Deputy First Minister Northern Ireland, and in particular McGuinness and to interact with the the importance of the North-South parties here in the Republic is important ‘Strand Two’ of that peace? in an island context and we support that very strongly. Well, I think that normality often in politics leads to forgetfulness, so it is There are issues like Project Kelvin which important that the structures that are puts Northern Ireland right at the top now in place for some time continue to internationally in terms of capacity for be managed. That is why I am happy to broadband communication – we need to attend North South Ministerial Councils; follow that in the South so that we can that is why the bodies under the North bring the island to a point where it can South Ministerial Council continue be a global hub for Cloud Computing to meet and Ministers pick up the and for data content storage. We need telephone and talk to each other – all to link into Kelvin so that we can light that is important. up the west coast with fibre, and local authorities from Derry down to West Cork can have a real opportunity to say
16 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Pictured at the opening of the Peace Bridge in Derry/Londonderry on 25 June 2011: (from left to right) John Hume; the Taoiseach, Enda Kenny; Deputy First Minister Martin McGuinness; EU Regional Policy Commissioner Johannes Hahn; First Minister Peter Robinson; Mayor of Derry Maurice Devenney, with children from local schools. that data content and Cloud Computing place where the people have a passion is the place to be. for work, a passion for productivity, for high standards and competency, be it My mantra is very simple: by 2016 to in food or technology or innovation or prove firstly that we are the best small whatever, this is the island to be on. country in the world to do business with; secondly be the best country in Do you think North-South economic the world in which to raise a family, and cooperation has any role in helping thirdly be the best country in the world in to get the island out of recession? which to grow old with a sense of dignity If so, how? and respect. These are things that are not unachievable. Of course it has, and the trading links that I have referred to and the Do you think that the North-South cooperation that exist in health and dimensions of those aims are education are areas where we can important? do so much. We are the only English speaking country in the Euro zone, and Yes, I do because they send out a although Northern Ireland is obviously signal globally. If you want to go to a associated with Sterling, we are still an
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 17 island - and people like to look at this their performance, and it was the sense island from abroad and think that we of ‘heads up’, the confidence, that was have got stability, we have got a location so important. in Western Europe that has no military designs on any place else, and we have Could you envisage the North got a young population that is flexible South Ministerial Council’s remit enough to cater for the demands of being extended in the future to whatever might arise. include areas of North-South cooperation other than those agreed I had a multinational chief executive in the Belfast and St Andrews in here some time ago, and she said: Agreements? Which areas would ‘We have brought our primary products you like these to be? from Silicon Valley to Ireland’. I asked: ‘What is the reason for that? Is it the The all-island energy market was one Corporation Tax rate, or the fact that that was developed outside the Good we are English speaking?’. She said: Friday Agreement, and I think it is ‘No, it is the passion displayed by the obviously of significant importance. If young people for what they are doing’. you look at both Britain and Ireland’s That is a big signal about the younger requirements for energy for the next 20 generation, and we are very proud of years, obviously there is a real problem that, North and South. there that can be partly tackled by such a market. In the Republic of Ireland What is your vision of the ‘island of and in Northern Ireland there are also Ireland’ economy in 10-15 years? opportunities for renewables to be sold to Britain. I would like to see it being run competently, with economies that are I also think the visit of the Queen had growing and prosperous, and where an enormous impact on tourism in both people have the choice to stay at home parts of the island. When you think that in their own place and have a job and a Rory McIlroy is No. 2 in the world – and career if that is what they want to do. If Graeme McDowell and Darren Clarke that is not what they want to do - and and of course Padraig Harrington – I hate to see forced emigration – at these are all iconic figureheads for young least if they go, they go with confidence people. They are people of global reach. and with competence. And the thing So I say to all those who are ‘swingers I notice about the Republic and of the stick after the white ball’: if you indeed Northern Ireland in the last 10 want to find out the secret, you have or 15 years is the confidence of young to come to play here in Ireland and people. They can stand up on any stage Northern Ireland. and articulate their arguments very powerfully and cogently. When I was up So I think there are areas of energy, at the Aisling Awards in the Europa Hotel tourism and business which can in Belfast in November I saw this: they be looked at. While the Good Friday got up there and said their piece or gave Agreement was put together under
18 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Pictured at the Aisling Awards on 17 November 2011 in the Europa Hotel, Belfast (from left to right): the Taoiseach, Enda Kenny; Mrs Geraldine Finnucane; Lord Mayor of Belfast, Councillor Niall Ó Donnaghaile. very difficult circumstances, it has its Republic – I can’t give you the figures structures, but life is changing and now because until the end of February we may need to widen those areas of we do not know how many civil servants cooperation. I think the recognition of will leave, but the cost of the delivery of cooperation between North and South public services has been reduced and is very important – whoever is in charge with new technology the capacity for in 20-25 years time will live in a very more cost-effective North-South shared different world, but it is still going to services is clearly there. require human connection and doing business with each other. I think education is an area here, and innovation, technology, research and Is there a case for more ‘value for design – all of these things that are money’ North-South cooperation changing the world that we live in are between public service deliverers, all certainly a central part of that. There particularly in areas like health, is lots of potential in health: cancer higher education and treatment, centres of clinical excellence, environmental services? radiotherapy. When the issues of ‘the troubles’ and wars are just a distant Yes - The way Northern Ireland has memory, these are the kind of services downsized the extent of its public that are going to affect the quality of the service, and the cost of delivery of lives of people in their hundreds and those public services, speaks for itself. thousands for the future. And the same applies here in the
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 19 Would you encourage your civil We have also made arrangements in servants to investigate seriously the respect of NAMA for Northern Ireland feasibility of doing such joint work in and the bank issues that are there, the delivery of services? so that is another important area for cooperation. Given that people North Absolutely. We have a very strong and South all have the same challenges, commitment to seeing that that actually and we all breath the same air, and the happens. I know that some civil servants uncertainty that is out there in the Euro have been moved from the positions zone affects everybody, we need to get they were in. But new circumstances our island economy in a strong shape. and new responsibilities and new That means elimination of waste, paring levels of cooperation, working together down of duplication, and having a lean, and understanding each other – that competent, professional pubic service is absolutely part of what we want to machine that respects the personality of project here. We cannot go on the way the people of the North and the people we are, and we are never going back, so of the Republic and allows them to get we are going to put the country into the on with their daily business. What can bright new light that is shining for us in be more normal than to have people the future. go about their daily business and be able to plan – as far as you can in this Do you agree with the former Fianna mortal world – for their future and the Fail Minister Martin Mansergh that future of their families. That is what good barriers to North/South cooperation politics is about, so our brand would be have never been lower, and that the to work with the elected representatives Government should concentrate in Northern Ireland for the benefit of the on continuing to lower those rather communities and the peoples North and than press any claims for Irish unity South. And as an island, let us show the at a time when its overriding priority world what we can really do. is to get the Irish economy out of its present mess? The former head of the IDA Padraic White said recently that the cross Yes, I do, I agree with that. Barriers have border region, which has always never been lower, cooperation has never been rather peripheral, should been higher: be it between the PSNI come up with a plan for a ‘border and the Gardai; be it issues of trade development zone’, based on the and business; be it issues of education, existing entrepreneurial firms in the research, and health – there are region and driven by dynamic county exceptionally high levels of cooperation managers and local authority chief in all these areas. I would like to see executives. Would you be supportive another real impact for Northern Ireland of such an idea? and for the Republic in the stimulation of the indigenous economies, North and You have a Border Midland and South – which means small and medium Western regional council which is part enterprises cooperating. of a European entity. You don’t need
20 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 a plethora of new bodies to deal with should be there, in the same way as this. I think that county managers with they are in the affluent areas of imagination and creativity can have major cities. a real impact on the topography and infrastructure in their areas and they Can I ask you what you think of the also have cross border connections with work of the Centre for Cross Border local authority chief executives on the Studies? other side. The border region has had PEACE and INTERREG monies over I think the Centre plays an important the years, and these programmes have role, in that it provides quality reports played a very important part, but good for people to study. Politicians as a governance can spread the benefits rule don’t absorb reports like that on a of a well run economy throughout the regular basis, but I think it is important region. The same opportunity for the to have people who can tell them: ‘Here small and medium enterprises in Cavan is a really valuable report, here are or Monaghan or Fermanagh or Tyrone the essential items out of it - bear this
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 21 in mind when you are talking to your counterparts from other locations about the mutual benefits for the communities on both sides of the border. So it is an important entity, it does important work. I have read a number of its reports over the years and I value them greatly.
The interviewer was Andy Pollak and the interview took place on 20 January 2012.
22 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 THE AGREEMENT GENERATION: YOUNG PEOPLE’S VIEWS ON THE CROSS-BORDER RELATIONSHIP
Aoibhín de Búrca and Katy Hayward
Martin McGuinness’s candidacy for Sinn Féin in the 2011 Irish Presidential election brought the complex reality of the North-South relationship to the fore in a Southern political context. One particular question posed directly to McGuinness by a young woman in a debate on the RTÉ Frontline programme encapsulated an underlying tensión (emphases as verbally delivered): Aoibhín de Búrca As a young Irish person, I am curious as to why you have chosen to come down here to this country, with all your baggage, your history, your controversy? And how do you feel you can represent me, as a young Irish person, who knows nothing of the Troubles and who doesn’t want to know anything about it?1
McGuinness responded with the assertion that Derry is Katy Hayward as Irish as Cork or Kerry – a comment that generated loud applause from the audience. He went on to state that, although he had met a ‘tiny minority of people who are partitionist in their thinking … the people of Ireland are not partitionist’.
Even if more than a tiny minority agree in attitudes towards the border. The with this young woman’s opinions, her young questioner simply equated willingness to express them publicly is ‘Northern’ with ‘Troubles’ and, therefore, unusual in the Republic – perhaps it as something she did not want to reflects the fact that historical progress, know about, let alone engage with. In as well as geography, has fortunately this paper, we seek to understand a distanced her from the conflict. Thus, little more about the views of young the reason her question proved so people on both sides of the border striking is that it indicates not only about their relationship to each other. alienation between North and South, In doing so, we suggest that, as hinted but a growing inter-generational gap by the tenor of the Frontline question,
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 23 it is not necessarily the case that the concept of the ‘Agreement Generation’ benefits of peace will be translated by does not expect convergence of the ‘Agreement Generation’ into more opinion among Northern and Southern amicable cross-border relations. respondents on all topics of debate, but it is premised on the belief that the social The Agreement Generation and historical process stimulated by the 1998 Agreement has created a new Young adults of today are the first all-island context for conceiving the Irish generation of people on the island border and relationships across it. of Ireland raised in a context of a negotiated – and democratically In order to assess the impact of this endorsed – agreement on the changed context on the North-South constitutional question, supported by views of the young people who make institutions working on a power-sharing, up the Agreement Generation, we cross-border and inter-governmental briefly examine here the legacy of the basis. The 1998 Good Friday/Belfast conflict on opinion in the Republic Agreement provided an opportunity to (as reflected in anti-partitionism) and reframe the various relationships within in Northern Ireland ( as reflected in and between the Republic of Ireland community relations) with reference to and Northern Ireland. But its lasting public opinion survey data as well as legacy will be determined by those who academic research on shifts in national were young children at the time of its and communal identity on the island. We conception – a generation then report the initial findings of a small whose views on the subject of the focus group study with undergraduates border and the ‘other’ across it remain in the Republic of Ireland from University relatively unknown. College Dublin (UCD) and in Northern Ireland from Queen’s University Using Mannheim’s work on the Belfast (QUB). The focus groups were sociology of generations, we define conducted to examine in depth the a ‘generation’ as an age group views and opinions of the younger located within a shared social and generation regarding the conflict, the historical process. Those whose early 1998 Agreement, the North-South childhoods coincided with the peace relationship and their vision of the future process can be said to be part of this of this relationship. ‘generation location’.2 More difficult to identify is whether this group exist as Anti-partitionism in the South a ‘generational actuality’, North and South, whereby they share a common There is a tendency (as McGuinness vision, ideas and conceptual reference predictably exemplified) to presume that points.3 We could theoretically discover the majority of people in the Republic this if there appears to be evidence are in favour of unity and have remained of identity shifts and norm-creation anti-partitionist since the creation of in line with the principles of the 1998 the state. However, unsurprisingly, Agreement. Our examination of the polling data shows the issue to be more
24 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 complex. Support for a united Ireland was highest in the late 1970s and early 1980s during the ‘Troubles’, but by the turn of the century the European Values Survey (1999-2000) found that only a slight majority favoured Irish unity (54 per cent), whilst one third wanted to see an independent Northern Ireland.4 This very slender pro-unification majority is in line with more recent polling on the topic by the Sunday Independent and Sunday Business Post newspapers.5
Additional questioning finds that unification is not an immediate objective, and the commitment and support to it is not always wholehearted.6 Thus Mair describes the attitude of Irish voters as: ‘Unity would be nice. But if it’s going to cost money, or result in violence, or disrupt the moral and social equilibrium, then it’s not worth it’.7 As the official version of Irish nationalism has rescinded irredentist claims over Northern Ireland as part of the peace process and a broader process of Europeanisation,8 so popular Irish nationalism has slowly incorporated ‘the physical border created between the North and South’.9
Relevant to this, and notably present in the 2011 Presidential election debates, around the 2004 referendum on Irish is the argument (by Fahey et al.) that citizenship arguably returned ethnicity civic features (i.e. centred on common and ancestry right to the heart of the laws, values and institutions) are more process of determining ‘legitimate’ prominent than ethnic features (e.g. Irish identity.11 It appears indisputable language, ancestry) in how people in that changes to Irish nationalism in the the Republic define Irish nationalism and contemporary Republic are social and national identity.10 That said, although cultural in nature, as much as they are ‘speaking Irish’ or ‘being Catholic’ may due to modified interpretations of the be seen as optional identity markers ‘constitutional question’. for those born to white Irish parents in the 26 counties, the results and debate
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 25 The constitutional question has not the institutionalised segregation of the been definitively resolved, but it was education system. Opinion surveys removed as an obstacle to cooperation among young people in Northern by the 1998 Agreement. This has helped Ireland consistently show that they facilitate significant advances in policy are generally favourable to enabling sharing and regional infrastructure, as greater ‘mixing’ between communities; well as material, symbolic and cultural indeed, 20 per cent see themselves exchange (as assiduously reported and as belonging to neither the Protestant aided by the Centre for Cross Border nor Catholic community.15 Morrow’s Studies). The Agreement Generation study of a series of these surveys leads have grown up with these new North- him to the conclusion that ‘this is a South developments and are thus part generation expectant of change’.16 Yet of a ‘generation location’; yet to what this tells us little in itself about what extent has this shaped the creation of kind of society these young people common values and opinions that would might contribute to creating in Northern indicate even a tentative cross-border Ireland. Indeed, our tendency to burden ‘generational actuality’? young people both with the hope that they might bring future change, as much What’s new for the new generation as to blame them for opportunistic/ in the North? occasional sectarian disorder, only serves to disempower them as active Studies of young people in citizens. A better approach would be to contemporary Northern Ireland prioritise redressing the serious deficit in consistently point to the enduring legacy the recognition of young people’s rights of the conflict. Connolly et al. found that which currently inhibits their engagement cultural dispositions and prejudice are and participation in wider society.17 formed among children from a young age,12 and Leonard has shown that Research study outline these cultural habits soon translate into the use of sectarian markers – and For the purposes of this small study, divergent social worlds – of Catholic and we used the method of convening Protestant teenagers.13 Indeed, Shirlow focus groups among social science and Murtagh argue that these cultural undergraduates who were in their early barriers are such that young people are years of primary school at the time of more likely to hold sectarian views than the 1998 Agreement: that is to say, their parents or grandparents.14 Such students who will have had all their findings pose the risk of allowing young political socialisation and education in people to be presented as ‘perpetrators’ a post-Agreement environment (shared of the conflict rather than as its ‘victims’. ‘generation location’). The rationale for the use of focus groups was to enable The Agreement Generation is made discussion to be centred upon five core vulnerable to conflict by this persistent themes but still be open to development sectarianism, together with (according in response to opinions and issues to the young participants in our study) raised among the student groups
26 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 themselves. These core themes were: basis from students within the same • Generational difference social science degree programmes, • Knowledge of/familiarity with the we found that ensuring a mix of 2nd 1998 Agreement and 3rd year students meant that • Interpretation of the Agreement and students tended not to know each other its significance beforehand and knew their paths were • Cross border relations and unlikely to cross again, and therefore did perceptions not appear constrained from discussing • The future: suggestions for building the issues in hand. cooperation, especially within own generation. Helping to ensure that students felt free to express their views was an Three focus groups were conducted especially important consideration for (two in Dublin, one in Belfast), each participants in Belfast, where (perhaps session lasting around an hour and ironically given the ever-present issue a half and involving an average of of conflict) opportunities to discuss the four participants. This data was subject openly in a cross-community supplemented by self-completed group are still rare. Although we had a questionnaires of open-ended mixture of gender, social and religious questions on these same topics to an backgrounds in these focus groups, we additional set of students in Belfast. make no claim that these groups are Ethical approval was given for this representative of wider opinion in their research by the relevant research age group. Nevertheless, we used this ethics boards in both UCD and QUB. method to bring to a wider audience the Particular care was taken to ensure that, views of some in this generation who, although focus groups were held on being third level social science students, campus to ensure that participants felt are among the most engaged and as comfortable as possible, students informed regarding the subject were absolutely clear that the process in question. was wholly disassociated from their college studies and performance. All Generational difference responses were fully anonymised and the recordings of the focus groups were All the students participating in this accessible only to the interviewer. study identified a clear generational difference between their views and We were conscious that some those of their parents and grandparents participants could find some of the regarding the conflict and the ‘other topics covered sensitive, so the purpose side’ of the border. This was not and remit of the session, together with framed consistently as being a result ground rules for constructive discussion, of having grown up in a post-ceasefire were made clear in advance, with each context. Indeed, one participant in a participant understanding that (s)he was Dublin focus group argued, in response free to withdraw at any point. Although to McGuinness’s Presidential participation was secured on an opt-in election candidacy:
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 27 That is the problem with Martin all focus groups expressed particular McGuinness running: it’s too fresh. frustration at the failure of politicians to It’s not that ‘your father did this to my concentrate on working together on father’, or ‘your grandfather did this to issues of concern to everyone, such my grandfather’. It’s: ‘you did this to my as health and education. The solution family’. It’s too soon.18 proffered in frank terms by one Dublin- based student was : It is notable that this view of the ‘live’ conflict is expressed by a Southern Make the Northern Ireland respondent – but it is surely no Assembly themselves make coincidence that this comment arose decisions. This will finally make when discussing the Presidential the politicians answerable to the candidacy of McGuinness. Perhaps voters, and voters will ask: ‘Why this suggests that the young woman’s did I vote for this person, they’re question on the Frontline programme an idiot!’ And let them see that the encapsulated a wider popular fear, and politicians, when given responsibility, even resentment, that McGuinness’s are not representing them and doing presence in the Presidential race their job.20 was dragging the very issue of the Northern conflict back into the South The 1998 Agreement and into the twenty-first century. In contrast, Northern respondents readily It is this perception that those currently acknowledged that the conflict is still in power are ‘still bitter and stuck’ that very ‘real’ for them (one respondent directly informs students’ slight caution to the questionnaire stated: ‘Sectarian towards the 1998 Agreement. One violence, and fear of it, doesn’t seem to respondent to the QUB questionnaire be decreasing’), but were confident in wondered: ‘Did our parents make a drawing a distinction between mistake in agreeing to the Agreement? their experience of it and those of We’re wary of doing the same’. their parents. Students on both sides of the border are keen to judge the success of the For example, one of the participants Agreement on the basis of the changes in the Belfast focus group described it has facilitated rather than on its the fear and bitterness that shaped symbolic significance, seeing it, quite the lives of her grandparents as having realistically, as an ongoing process been ‘phased out’ by the time of her fraught with difficulties. generation.19 Her fellow focus group participants generally echoed the belief Even though the Good Friday that they are relatively free from the Agreement was sensationalised in burden of past hurts, and therefore were the media as a great turning point, able to articulate a general optimism really it took many years for any of about the potential of their generation to the stuff to come into practice. You ‘rise above’ identity politics and engage know there is still a lot of hostility with more urgent problems. Indeed, in many communities to the other
28 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 side. I think it’s really only now you’re the changing nature of ‘Irishness’ and seeing – with the regeneration nationalism in the Republic in the past programmes and stuff – a bit of century, particularly the diminishing change happening. …So I wouldn’t importance (in their eyes) of religion say [the Agreement is] a huge and traditional ethnic nationalism. success.21 Furthermore, the Southern students suggested that the British-Irish No student participant appeared to relationship is more positive, or at least be entirely familiar with the minutiae of less fraught, than the North-South the Agreement and the subsequent relationship; some went so far as to institutions, but all seemed aware of its indicate more affinity with London than key areas of impact and, interestingly, Belfast, due not only to its cultural the issues of contention around it. diversity and size but also to a sense of simply not understanding Belfast. Related to this point, the respondents Although respondents recounted largely generally agreed that progress in Strand positive experiences of crossing the Two is stymied by suspicions over border, some confessed that doing the motivations for this North-South so made them consider the cultural dimension, but Northern and Southern differences between them to be greater students had differing interpretations as than they had originally believed. to what the motivation for cooperation was. Whereas those in Belfast saw More broadly, the students readily engagement with the South as directly acknowledge the complexity and related to religious or political affiliation, ambiguity of the current arrangement. Southern students said the objective Southern respondents in particular of cross-border cooperation was to expressed frustration at the difficulty of promote investment and trade for classifying the relationship of Northern mutual benefit, and was thus driven by Ireland to the Republic: financial considerations rather than any nationalist ideology or solidarity. (This We don’t know what they are. is perhaps reflected in the fact that, It’s not clear. They aren’t just a of the participants in the Dublin focus neighbour or another country like groups who had visited Northern Ireland, Spain. They aren’t like England many had done so to go shopping!) either. So they’re not a neighbour, Otherwise, they argued, there is no but they are also not part of Ireland incentive to cross the border – indeed, as things stand. Nobody has it appeared to them in some ways come up with a definition of what more awkward to do so than to travel the relationship is between the 26 elsewhere in Europe. counties and the 6 counties.22
The ‘other jurisdiction’ The use of language and ambiguity, its role in positioning and identification, and In comparing both jurisdictions, the the difficulties that exist regarding certain Dublin-based students highlighted terms, was mentioned repeatedly in the
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 29 focus group discussions. The reasons recognition of two jurisdictions and their for this perhaps include the fact that, perception of ‘huge cultural difference’ as they talked, the students themselves between North and South. became aware of how cautious they are habitually prone to be when discussing The legacy of conflict the topic of the conflict and cross- border relations. The cultural ‘otherness’ of the North was frequently and unambiguously Related to this, one finding from the claimed by our Southern respondents, focus groups is that the Northern and including by those who expressly Southern respondents view one another, hoped for Irish unification. The example and the ‘other jurisdiction’, in quite of ‘painted kerbstones’ was raised in different terms. In this very small study, each of the focus group discussions all the Dublin-based students explicitly (North and South) by the participants recognised partition. One UCD student as a convenient illustration of the put it bluntly: division and confrontational identities still associated with Northern Ireland. Neither of us want it [Northern One Dublin-based student used the Ireland]: neither us nor the UK language of bio-cultural determinism to government. I’d say if you asked explain his lack of identification with his the majority of Irish people – yes, Northern counterparts: ‘kids [in Northern nationalists, out of a sense of Ireland] are brought up in such an allegiance, might say they wanted environment that [it] means the conflict Northern Ireland – but it’s really far is embodied in them. ...I just don’t know more trouble than it’s worth. I mean how far they have come.’ Another, in to integrate Northern Ireland into this a different group, similarly described state – why would you be bothered? the conflict in Northern Ireland as: ‘an The status quo satisfies everyone.23 inbred thing of “I must take the side of the Catholics or the Protestants”. He Nevertheless, some of his fellow then went on to make a somewhat respondents confirmed that they surprising local comparison: ‘You know, aspire for a united Ireland in the future, it’s like Fianna Fáil people just hate Fine and reaffirmed the right to hold such Gael people and they don’t even know aspirations. More of them expressed a why!’24 Such sweeping generalisations curiosity about the North, and a desire were not reciprocated by the Northern to improve the relationship with it and to respondents towards the Republic and be actively inclusive in doing so. There its population. was more divergence among the views of the Northern respondents about Somewhat ironically, given the ease North-South relations, and this – not with which some of the Dublin students surprisingly – appeared to relate to stereotyped Northern Ireland and traditional lines of political affiliation. All Northerners, the need for diplomacy of them, however, expressed surprise and tact in North-South relations was at their Southern counterparts’ explicit acknowledged by all. Some frustration
30 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7
was expressed at the fact that the The future North-South relationship (or, indeed, unification) is rarely discussed openly Such events as the summer 2011 riots and honestly. Most explain this to be in Belfast contributed to the sense of due to necessary consideration of general pessimism regarding the current opposing views and out of a concern to state of affairs in Northern Ireland not do anything to damage the fragile (with concerns over the North-South peace. All expressed some exasperation relationship voiced by the Southern with people, including parents as well as students in particular). Nevertheless politicians, who still focus on and thus all participants expressed the hope perpetuate the traditional divides and that the remaining problems can be divisive constitutional question. They addressed, not least because they see saw this very much as a problem of these as ‘bread and butter issues’ for older generations rather than their own. which solutions can be found, given the political will (a factor viewed by our This reflects the fact that all our respondents as being all too often in respondents appeared to draw a direct short supply). link between ‘traditional’ views, ‘bias/ prejudice’ and the Northern conflict. First, they expressed a wish to see Northern respondents were careful to the end of segregation in housing and constantly reiterate that their generation education, and impatience with the is determined that political goals are lack of initiatives in these areas. They ‘not worth the cost’ of violence. As also had many suggestions of their one (nationalist) participant said when own: such as to teach similar civic and talking about the aspiration of Irish history education to students on both unity: ‘a lot of people growing up now sides of the border; to give more media can’t be bothered with it. They are nearly coverage to North-South cooperation fed up hearing about it. No one cares and cross-border bodies; to cooperate anymore’.25 Southern respondents were on upcoming commemorations in equally aware of the priority and fragility order to show respect for one another’s of peace and perceived strong Irish important historical events rather nationalism to pose a threat to this, as than allow them to be divisive; and seen in one person’s description of the to establish third level cross-border situation in Northern Ireland: exchanges so that students can become familiar and engaged with their It’s a tinderbox and if you push counterparts over a period of time in a it, it might just explode, and no safe environment. one wants to go back to what it was. Nobody wants to go back to If the Northern conflict endures because shootings. Even during the recent of fear, then our findings (as with the riots in Belfast everyone just thought: response to McGuinness’s presidential ‘What are you doing? Just get a grip campaign) suggest that it will also of yourselves and calm down’.26 continue to linger in the cross-border relationship within the young people who
32 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 make up the Agreement Generation. be aware of the sensitivities of the The young generation in the South still subject and, furthermore, not to allow perceive the North with some degree this uneasiness to transmogrify into of apprehension – something that is prejudice or conflict, is something that based on a simple association of the characterised the discussion of the North, and Northerners, with conflict (as North-South relationship across our evident in the Frontline question directed study. to McGuinness). Even our young Dublin- based respondents have internalised This is connected to the overriding a wariness of ‘huge cultural difference’ theme emerging from all our focus group (expressed in their concerns about discussions: the need to affirm the norm wearing the wrong colour shirt or having of consent and respect for difference, a noticeable accent) that reinforces and not to force people into identity in their own minds the ‘otherness’ of categories or constitutional positions. Northern Ireland and the implications of In so doing, our respondents, North crossing the border. and South, appear to have – to no insignificant degree – incorporated the It is notable, however, that such fears key principles of the 1998 Agreement are not reciprocated with nearly as into their thinking on the North- much broad intensity of feeling by South relationship (principles such as Northern respondents towards the replacing absolutist goals with political South (although community background accommodation, mutual consent, and proximity to the border are acceptance of differing national identities significant variables). One Belfast-based and principles, and pursuing political student even attempted to empathise aims by peaceful means). with her Southern counterparts’ fears by making the analogy of cross This may be seen to constitute the community relations: tentative elements of a ‘generational actuality’ that gives the very concept I suppose [for a Dublin student of an all-island Agreement Generation crossing the border] it’s how a some validity. Sharing these values, Protestant feels going into a Catholic this generation see themselves as area: it makes you feel maybe a being better placed than their parents bit uneasy – and the same with a to work on building North-South trust Catholic going into a Protestant and respect. But they also readily area. I wouldn’t say it’s entirely acknowledge that the embedding different with North and South.27 of peace requires deep political and social reform that will not simply appear This debate reveals something of the as a product of the passing of time. enduring attentiveness to cultural The Agreement Generation (and their difference and borders/boundaries cross-border relationships) remain for the Agreement Generation, indisputably affected by the legacy of North and South. Yet their broad conflict; yet their very awareness of this willingness to empathise and to legacy, and of the long distance yet to
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 33 be travelled to realise the Agreement- ACKNOWLEDGEMENTS based principles they share, constitutes a common foundation for their role in the The authors would like to thank UCD’s consolidation of peace. John Hume Institute and Universities Ireland for funding this project, as well Aoibhín de Búrca is an Ad Astra as the individual students in UCD and Research Scholar and final year QUB who participated in the focus PhD candidate at UCD’s John groups and completed questionnaires. Hume Institute for Global Irish Thanks also must go to the participants Studies and the School of Politics of the Agreement Generation conference and International Relations. Her (November 2010), whose contributions research focuses on political informed the project. violence and ethno- nationalist conflicts, particularly in the contexts ENDNOTES of Ireland and the Middle East. She was the convenor of the Agreement 1. RTÉ Frontline programme broadcast Generation conference held in UCD on 24th October 2011, question (2010). She was RTÉ’s researcher posed by Emma Louise (emphases and election monitor during the as verbally delivered). Available 2011 Irish General Election, and was online: http://www.rte.ie/news/ previously researcher and producer av/2011/1025/media-3090560.html for Newstalk’s The Wide Angle and [accessed Jan 2011]. Saturday Edition. 2. Mannheim, K. (1952) Essays on Dr Katy Hayward is Lecturer the Sociology of Knowledge, ed in Sociology in the School of Kecskemeti, P., London, Routledge Sociology, Social Policy and Social & Kegan Paul Ltd, p. 292. Work, Queen’s University Belfast and a board member of the Centre 3. Mannheim, K. (1952), p. 306. for International Borders Research. Her research interests include 4. Fahey, T., Hayes, B. and Sinnott, R. conflict transformation and cross- (2005) Conflict and Consensus A border co-operation in the EU study of values and attitudes in the context. Recent publications include Republic of Ireland and Northern Political Discourse and Conflict Ireland, Dublin: Institute of Public Resolution (co-edited with Catherine Administration, pp. 89-92. O’Donnell, Routledge, 2010) and The Europeanisation of Party 5. O’Reilly, J. (2005) ‘Almost half of us Politics in Ireland, North and South would reject a United Ireland: poll’, (co-edited with Mary C. Murphy, Sunday Independent, 18th Sept Routledge, 2010). 2005. Leahy, P. (2006) ‘Majority want a united Ireland but not in a hurry’, Sunday Business Post, 2nd April 2006 .
34 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 6. Hayes, B and McAllister, I. (1996) 12. Connolly, P., Kelly, B. and Smith, A. ‘British and Irish public opinion (2009) 'Ethnic Habitus and Young towards the Northern Ireland Children: A Case Study of Northern problem’, Irish Political Studies, Vol Ireland' European Early Childhood 11, pp 61-82. Coakley, J. (2009) Education Research Journal, Vol. 17, “Voting for Unity or Union? The No. 2, pp.217-232. Complexities of Public Opinion on the Border Issue”, Journal of Cross 13. Leonard, M. (2009) 'It's Better to Border Studies in Ireland, Vol 4, Stick to Your Own Kind: Teenagers' pp. 79-90. Views on Cross-community Marriages in Northern Ireland', 7. Mair, P. (1987) ‘Breaking the Journal of Ethnic and Migration Nationalist Mould: The Irish Republic Studies, Vol. 35, No. 1, pp.97- and the Anglo-Irish Agreement’, 114; Leonard, M. (2010) 'Parochial Beyond the Rhetoric: Politics, Geographies: Growing up in Divided the Economy and Social Policy Belfast', Childhood, Vol.17, No.3, in Northern Ireland, ed Teague P., pp.329-342. London: Lawrence and Wishart, p.105. 14. Shirlow, P. and Murtagh, B. (2006) Belfast: Segregation, Violence and 8. Hayward, K. (2009) Irish Nationalism the City, London: Pluto Press. and European Integration: The official redefinition of the island of 15. Results from Northern Ireland Young Ireland, Manchester: Manchester Life and Times survey (2010), see: University Press. http://www.ark.ac.uk/ylt/2010/index. html [accessed Jan 2011]. 9. Davis, T. (2003) ‘The Irish and their Nation: A Survey of Recent 16. Morrow, D. (2008) ‘Shared or Attitudes’, The Global Review of Scared? Attitudes to community Ethnopolitics, Vol. 2 no. 2, January relations among young people 2003- 2003, p. 33. 7’, in D. Schubotz and P. Devine (eds) Young People in Post-Conflict 10. Fahey, T., Hayes, B. and Sinnott, R. Northern Ireland. Lyme Regis: (2005) Conflict and Consensus: A Russell House Publishing, p. 16. study of values and attitudes in the Republic of Ireland and Northern 17. McAlister, S., Scraton, P. and Ireland, Dublin: Institute of Public Haydon, D. (2010) Childhood Administration, p. 69. in Transition: Experiencing Marginalisation and Conflict in 11. Ryan, B. ‘The Celtic Cubs: The Northern Ireland, Belfast: Queen’s Controversy over Birthright University/Save the Children/ Citizenship in Ireland’, European Prince’s Trust. Journal of Migration and Law, Vol. 6, pp.173-193.
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 35 18. Extract from transcript of focus group, University College Dublin, 19 October 2011.
19. Quotations from transcript of focus group, Queen’s University Belfast, 2 November 2011.
20. Extract from transcript of focus group, University College Dublin, 19 October 2011.
21. Extract from transcript of focus group, Queen’s University Belfast, 2 November 2011.
22. Extract from transcript of focus group, University College Dublin, 19 October 2011.
23. Extract from transcript of focus group, University College Dublin, 21 October 2010.
24. Extract from transcript of focus group, University College Dublin, 21 October 2010.
25. Extract from transcript of focus group, Queen’s University Belfast, 2 November 2011.
26. Extracts from transcript of focus group, University College Dublin, 19 October 2011.
27. Extract from transcript of focus group, Queen’s University Belfast, 2 November 2011.
36 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 RETHINKING REGIONAL RENEWAL: TOWARDS A CROSS-BORDER ECONOMIC DEVELOPMENT ZONE IN IRELAND
John Bradley and Michael Best
The task of getting national economic development strategy right is hard enough. But the challenge of regional development strategy is even harder. To paraphrase the famous opening lines of Tolstoy’s Anna Karenina: ‘All happy regional economies resemble one another, but each unhappy region is unhappy in its own way’. Since 1922 our perspectives on the development John Bradley challenges of the macro economies of the Republic of Ireland and Northern Ireland have been reasonably well articulated and systematic, and have gradually became more effective as these two economies progressively integrated with the wider world economy.1 On the other hand, our perspectives on the development of the sub-regions of the island have tended to be partial, distorted, poorly organised and Michael Best often ineffective.
Previous regional development extremely difficult to coordinate the perspectives have been partial because many actors and layers of decision there is a natural tendency to focus making that need to be involved. They almost exclusively on the role of public are ineffective because there is a strong policy-makers and neglect other NGO preference to rely on national strategic and private sector actors and actions. development frameworks with the hope They are distorted because from a that centralised policies will generate mainly public policy perspective it is sufficient spillover and trickle-down difficult to understand the true potential effects from core, densely populated and structural characteristics of regional regions to peripheral, sparsely economies and how they evolve and populated regions. grow in an organic way. They are poorly organised, not for lack of regional It is not much of an exaggeration to say enthusiasm, but because it has proved that we have never really taken regional
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 37 policy very seriously on this island, and market forces. We have ended which is something of a paradox in view up with a regional outcome that of the extremely strong identification development planners never wanted! Irish people have with their own native counties and towns. In the post-World In the Republic of Ireland, regional War Two era there was a vigorous policy was revisited in the early years debate on ‘growth poles’ as a new of the last decade with the eventual orientation of national development publication in 2002 of the National strategy, where growth poles are usually Spatial Strategy for Ireland: 2002- large urban locations that benefit 2020. However, it was ironic that this from agglomeration economies.2 In the publication followed the major policy 1960s Buchanan’s proposal for Ireland decisions taken during the three major was to select a small number of such EU Structural Fund programmes of ‘poles’ for special development with the 1989-1993, 1994-1999 and 2000-2006, expectation that they would interact with when the economic infrastructure of the surrounding areas, spreading prosperity RoI was updated in order to accelerate from the core to the periphery. the pace of convergence to a higher EU-type standard of living. Logically the Regional dispersal policy formulation of the strategy should have come first! The timing of the National The outcome of the 1960s debate led Spatial Strategy unintentionally revealed to the rejection of ‘polar’ development the lack of importance that policy strategies in favour of a policy that makers attached to regional strategy. actively promoted regional dispersal of the benefits of (mainly) inward Of course, in the Republic of Ireland investment. Yet 50 years later we have a lot of policy attention is given to an island that has a small number regional sensitivities. However, this often of developed urban regions with takes the form of politically expedient infrastructure that is fit for purpose compensation in terms of fragmented and activity sustained by a largely ‘consolation prizes’ rather than as part foreign-owned manufacturing base, of any systematic regional development with expansion of internationally traded framework. In Northern Ireland, on the services taking up the slack in recent other hand, there is a general dearth years. The less favoured rural hinterlands of strategic thinking about its own and more peripheral regions have sub-regions. For example, the Northern had some injections of foreign direct Ireland economic strategy consultation investment, but this has created the paper that was published in November phenomenon of the ‘one plant town’ 2011 (Economic Strategy: Priorities for that is uniquely vulnerable and never Sustainable Growth and Prosperity), likely to become self-sustaining. In other makes no mention of sub-regional words, the well intentioned polices of development challenges and, more dispersal of economic development surprisingly, very little mention of the to the regions were frustrated by the economy of the Republic of Ireland. impersonal, inexorable logic of spatial
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explore www. armagh.co.uk During our recent research for a 2009- the cross-border region which lies largely 2012 Centre for Cross Border Studies outside major urban agglomerations. study on the Border Region Economy Spatial and market forces are weaker (on both sides of the border)3, we in peripheral regions, but not entirely discovered that the officially published absent. Increasing returns to effort in Northern Ireland economic statistics regional development are especially make it impossible to explore how, say, needed when resources are limited and the economies of the Newry-Mourne windows of opportunity rare. region or of the region centred on Derry City are performing relative to other Analysing regional strategy Northern Ireland sub-regions or relative to Northern Ireland as a whole. There is Systematic policy frameworks can a range of socio-economic indicators help small nations and their regions to of population, unemployment, poverty be smart with limited resources. They and so on. But there are none of the are essential in order to bring focus kind of data that would be needed if the and synergy to the disparate policies economic strategy for Northern Ireland that make up any modern national or as a whole were to be augmented by regional development strategy. However, treatment of sub-regional black spots. the experience in the Republic of Ireland has been that such frameworks usually Our verdict on the poverty of regional emerge as ex-post explanations of strategy might appear harsh and outcomes of policies that were designed unreasonable. Indeed, during our (or which emerged) in a less formal, research for the Centre for Cross Border more eclectic fashion. This is not an Studies, we found isolated islands of ideal situation, but is probably no less excellence, dedication and enthusiasm desirable than a slavish adherence to within the cross-border region, some of a rigid and prescriptive strategy that which are described below. But there might turn out ex-post to be completely did not appear to be any overall guiding inappropriate. Nevertheless, strategic strategy through which successful frameworks have an important role to initiatives could cumulate and generate play in identifying potential barriers to positive spillovers to other parts of the development or in distilling the lessons region. In part, the explanation was the of development experience in nations less ‘dense’ nature of the cross-border and regions that may share some region compared, say, to the ‘denser’ common characteristics. Formulating, urban agglomerations elsewhere on documenting and testing such the island. In part, it is also due to the frameworks represent some of the very policy fault line introduced by the border few ways that researchers can play a itself. But this does not mean that such role in promoting regional development. cumulative spillovers are impossible in other than urban agglomerations In general, there have been two broad contained within a politically unified economic approaches to regional jurisdiction. Unfortunately, it does mean analysis. The first might be termed that they are more difficult to achieve in the ‘descriptive’ approach, which is
40 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 based on the history of regions, their Southern Italy whose name has become geographical features, the quality synonymous with persistent under- of their physical infrastructure, the development and dependency. characteristics and standards of their human resources (or human capital), the A useful approach to developing an nature of their main economic activities analytical economic framework for the and their socio-demographic features. Irish regions, North and South, starts This ‘soft’ approach is popular, but off with the premise that regions have tends to end up as a confusing mix of different initial internal structures and praise for the great unrealised potential potential for some policy autonomy, of the region and a call for something to even if that potential is not always be done about its serious problems. The realised. For reasons that are fairly second approach might be described as obvious, no such framework has yet ‘analytical’, which is usually based on an emerged for the cross-border region. explicit economic framework and makes use of systematic data to examine Turning to a narrower focus on the critically the underlying economic business sector, the work of Michael mechanisms of the regions. Porter on competitive advantage has been influential in the reformulations Within the analytical approach to of Northern Ireland and Republic of strategy formation, one possible way Ireland 'national' industrial strategies, of looking at regional economies is to and has obvious – although as yet regard them as spatially scaled down largely unanalysed – implications for versions of the encompassing national Irish regions, including the cross-border economy, but which have at least some region.4 Porter asked how a nation local policy autonomy. At the other can achieve international success in extreme, one might regard regional any particular industry or in groups of economies as isolated production industries. His answers identified four units (or export bases) with little or broad attributes (the competitiveness no policy autonomy. However, if we ‘diamond’) that shape the environment regard the region as an isolated unit of in which firms compete: production, with very little local policy autonomy or initiative, then structural (a) Factor conditions: the availability development policy reverts to being the and quality of the factors of concern of the national authorities. In production such as skilled labour, these circumstances the convergence infrastructure etc. prospects of any such lagging region are (b) Demand conditions: the nature of limited, and depend almost completely local and external demand for the on how national policy towards the industry's product or service, where regions is designed and executed. local demand can play a vital role A lagging region risks being trapped in encouraging product innovation semi-permanently in dependency, a and improvement. situation that is often referred to as the (c) Related and supporting Mezzogiorno problem, after the region of industries: the presence or absence
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 41 of supplier industries and related the role Porter assigns to the home industries that are also internationally market and domestic firms (the home- competitive. country ‘diamond’), and has led to (d) Firm strategy, structure and modifications and extensions. In a rivalry: the national conditions closely related issue, Porter’s views on governing how companies are the role of inward FDI in small nations created, organised and managed. have also been criticised. Porter only regards outward investment as a Porter also suggested that there manifestation of competitive strength. were different stages of competitive Inward investment he regards as a development during which different manifestation of domestic weakness. elements of the ‘diamond’ come into play. At the early stages, competitive Except when it is largely passive, development is driven by factor widespread foreign investment conditions, and draws on low cost usually indicates that the process labour and/or abundant natural of competitive upgrading in an resources. The next stage is investment economy is not entirely healthy driven, drawing from factor conditions because domestic firms in many and demand conditions as well as firm industries lack the capabilities to strategy, structure and rivalry (i.e. from defend their market positions against three of the four diamond elements). In foreign firms. …Inbound foreign the final stage, competitiveness is driven investment is never the solution to by innovation and draws from the a nation’s competitive problems. entire diamond. (Porter, 1990, p. 671)
Of particular interest in the context The capability triad of small economies such as Ireland, including regional economies, is the Another framework to emerge from fact that Porter assigns particular a business research perspective is significance to indigenous firms and the ‘capability triad’ of Michael Best.5 local markets. More ominously, he The capability triad contains probably asserts that: the most synergistic combination of insights drawn from the economic A development strategy based solely theory of the firm and the detailed on foreign multinationals may doom history of the structural evolution of a nation to remaining a factor-driven business practices. It is based on the economy. (Porter, 1990, p.679) interaction of three elements: a business model, production capabilities and Debate on the wisdom and sustainability skill formation. The most crucial policy of the Irish national strategy has implication to emerge from Best’s raged over this important issue, and framework is that any overall programme has serious implications for regional of change in the area of industrial policy. An extensive literature has policy requires the close integration of grown up around the debate on the change programme in each of the elements of the triad:
42 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Rapid growth involves coordinated incorporated into formal computer organizational changes in each of models that can be used to carry out three domains: the business model, forecasting and policy impact analysis. production capabilities, and skill The Porter and Best frameworks formation. …The three domains are not are more like systematic taxonomies separable and additive components of that provide ways of organising facts growth, but mutually interdependent into sequences that are easier to link sub-systems of a single developmental together in a policy-useful way. process. …No one of the three elements of the Capability Triad can contribute A final framework, formulated by Jane to growth independently of mutual Jacobs, is very different.6 Jacobs’s adjustment processes involving all three principal theme is the part played by elements. (Best, 2001, p.2). cities in economic achievement. She sees cities as the engines of economic The business model element of the triad advance, providing markets, jobs, describes how entrepreneurial firms capital and technology for themselves, can grow, based on the creation of new the regions around them, and other firms through technology diversification, cities as well. Cities do this, she inter-firm networks within open systems, believes, only when business people in and regional specialisation based them engage in what she calls ‘import- on technological capabilities. The substitution’: that is, ‘replacing goods production capabilities element of the that they once imported with goods that triad integrates ideas from operations they make themselves.’7 Because, she management and strategy into a logical argues, ‘an import-replacing city does system of production models that not, upon replacing former imports, drives home the lesson that competitive import less than it otherwise would, but strategy and productive systems are shifts to other purchases in lieu of what bound together. The skill formation it no longer needs from outside’, the element of the triad provides a vital input import-replacing activity of the city is ‘at to innovation and serves to facilitate the the root of all economic expansion’. synergistic interaction and reinforcement of all three elements. Finally, an However, when the economic forces important implication to emerge created by a city’s growth spread from Best’s analysis is that overall beyond a city’s region, they are often not programmes in the area of industrial in reasonable balance with one another: strategy require the close integration ‘The various strands—markets, jobs, over time and space of the change technology, transplants and capital— programmes that need to take place separate from the mesh and take off within each of the elements of the triad. by themselves and create stunted and bizarre economies in distant regions’. The above three policy analysis An example is what she refers to as frameworks are analytical to varying a ‘supply region', i.e., a region that degrees. The most analytical – the supplies distant markets but lacks an macro-regional framework – is normally import-replacing city of its own.
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 43 Lessons from regional winners locally owned firms it was usually very clear that success was always traceable The most difficult part of our research to gifted individuals who founded and was the task of gaining a deep developed dynamic business ventures understanding of how businesses and leveraged local resources. In some operated in the cross-border region. cases the state development agencies Official statistics tended to be bland played a crucial supportive role. But in and uninformative, where they existed. others the firms seemed to value their Ultimately, knowledge lies with the independence and did not wish to bend people who run the businesses. their plans to the rigid, bureaucratic rules However, business people are always and regulations of the agencies. The busy and not only did we wish to diversity of experience was surprising. interview senior management and owners at considerable length, but we It is not our intention to describe this had a very intrusive list of questions that material in detail in this paper. A full tried to penetrate into the deepest areas account will be available in the project’s of the firm’s operation and strategy. The final report, to be published in spring visits that we were able to carry out were 2012. Rather we want to focus on a extraordinarily interesting, informative few implications of the analysis of the and thought provoking, and the senior performance of four sample firms: managers that met us gave generously namely, what wider lessons can we learn of their time and their expertise in a very from a detailed examination of a sample friendly and open way. Not only did we of specific firms that operate in the learn much about a range of individual cross-border area? firms, but we also came to interpret the role of public policy in a new and Hunter Apparel Solutions, Derry/ illuminating way. Londonderry
Given limited time and resources, we The insights arising from our discussions mainly targeted indigenous firms rather with the head of Hunter Apparel than multinational branch plants. We Solutions, Simon Hunter, related mainly accepted that foreign branch plants to the question of how a firm in a play a vital role in directly generating very traditional manufacturing sector jobs and indirectly sustaining activity (clothing) can transform itself and in the region. Indeed, for many small survive in a declining sector and a de- Irish towns the multinational enterprise industrialising region. When we visited is the largest, or sometimes the only, the Derry region and spoke to people significant manufacturing employer. in local government and NGOs, there But such plants can resemble what was a tendency to regard this sector as Jane Jacobs referred to as ‘castles a lost cause and to want to move on to in the desert’, having no organic links high-tech sectors that appeared to offer with other businesses other than more promise. Hunter Apparel Solutions through their direct and indirect spillover showed us how short-sighted and impacts. However, when we visited flawed this view was.
44 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Derry is known as the first city in the the skill base of the region. This led world to have shirt making factories, an to the decision to not compete on industry that once had 64 shirt making the basis of low manufacturing costs companies, many of which were large. for any single item or even to seek to Hunter Apparel Solutions is the only drive down costs on manufacturing by surviving company in the city’s clothing importing alone. industry, an industry that until recently dominated the regional economy. Simon Hunter’s strategic vision for Hunter began in Belfast in 1936 as a reinventing his company was based on retailer of police uniforms and relocated an understanding of the opportunity to Derry after buying a small shirt created by information technology and manufacturing company to control its the internet. By fortunate coincidence, supply chain. However, the shirt making he was developing a strategic vision industry contracted rapidly in the 1980s, precisely as the internet was starting and by the time Simon Hunter, the third to provide a sophisticated tool for generation owner, took over in 1995 the communication between supplier and number of shirt making factories had customer. He had studied accounting been reduced to four from the 46 at the at university and realised that the beginning of his father’s tenure. great opportunity to reduce waste and economise in the delivery of service When Simon Hunter became managing uniforms was not in production. Rather, director, his first challenge was to it was in simplifying and reducing the develop a strategy. He feared the ups long chain of activities in the and downs of getting into the fashion ordering process. end of the market and the power of retailers to shift the cost of unsold A new strategic vision inventories to manufacturers. He sought to build on the company’s legacy in The strategic vision became clear: supplying groups within the emergency Hunter Apparel Solutions would become services as these sectors were well- a ‘managed service agent’ for public known. But the marketplace was service agencies. The target was to changing due to a move toward the idea re-engineer the chain of activities in of ‘consolidated purchasing’ in which the ordering and delivery process for suppliers were required to offer a whole uniforms to drive waste out of the uniform rather than a single item. system. The technological cornerstone of the new business model was a Starting with the idea of ‘holistic’ proprietary web portal that would supply meant Hunter had to move eliminate much of the indirect labour toward supplying the whole uniform previously required to order uniforms. to its customers. Hunter Apparel, The new technology made it possible however, did not have the manufacturing for an individual member of a public capability to supply whole uniforms and service agency to interact directly with such capability could not be found by Hunter and thereby eliminate the many networking with other firms to combine intermediary people and transactions
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 45 that had previously been involved in the Castlecool, Castleblayney, order delivery process. Co Monaghan
On the production side it meant The insights arising from our discussions downsizing internal manufacturing with Paul Shortt of Castlecool related to activities and developing a flexible, the complex storage and supply logistic rapid response, networked supply systems that are essential in supporting system. This greatly expanded the the growth of high added value food company’s global reach. The in-house manufacturing, much of which is located production facilities were reorganised in the cross-border area. They also into four warehouse cells using visual, illustrated how firms that take the island ‘lean production’ system principles market seriously see the cross-border to maximize throughput efficiency. It region as an important strategic location also meant investing in a high-tech for supplying the large population embroidery capability for purposes centres, North and South. of individualizing uniform insignia and retaining a small but highly flexible Castlecool, a cold storage and logistics manufacturing capability to respond company founded and managed by to emergencies as well as to deal with Paul Shortt, operates from three sites highly customised orders. in Castleblayney, Lough Egish and Dundalk. It won the prestigious Deloitte Hunter is now established as the Best Managed Company award in managing agent of uniforms primarily both 2010 and 2011; recently won first for emergency services such as fire prize at the Small Firms Association brigades, police, ambulance and health. (SFA) National Business awards in the The success of the new business model Services category, and was nominated is indicated by the fact that Hunter in the SFA awards Environmental Apparel Solutions has contracts to Sustainability category. Castlecool’s supply the uniforms for 21 of the 48 UK customer base comprises major food fire services. It also supplies An Post, and beverage companies in the dairy Ireland’s postal service; Dublin’s new and retail food sectors in both Northern airport terminal staff; and the Northern Ireland and the Republic of Ireland. Ireland health and social care system. At the same time, by focusing on apparel What makes Castlecool particularly solutions, Hunter is now finding ways to interesting is that this single company partner with technology companies to interfaces with so many other dramatically improve the functionality of companies and sub-sectors of the the uniforms. In the case of health care food processing industry. It does so by professionals, this means developing providing a set of common production- uniforms that reduce the spread of related services that are required by infection. nearly all firms in the industry. This enables all its customer companies to specialise in their core capabilities and partner for their requisite business
46 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7
pick-delivery), interfaces with SAP and other systems, and provides product traceability processes.
To address the costs from the high energy intensity of cold storage, Castlecool has conducted R&D on wind turbines and combined heat and energy systems. In giving its 2010 award to Castlecool, the Small Firms Association noted that: ‘The company also works closely with Queen’s University Belfast to aid innovation and has recently taken in a graduate electrical engineer to look at wind-energy opportunities’. Funded in part by an InterTradeIreland Fusion award, Catherine Conaghan, an electronics engineering graduate of Employees of Bose learn about the 'lean' National University of Ireland Galway, manufacturing production system and Cuan Boake, a research fellow at Queen’s University’s Environmental services. Castlecool, in turn, is able to Engineering Research Centre, achieve economies of scale and scope completed an exemplary wind turbine in the provision of storage and logistics feasibility study for the Lough Eglish services to all of the firms in the industry Food Park site. In refrigerated cold independent of size. stores there is an opportunity to store energy passively within the building in The diverse but related range of services the internal structures and product. that Castlecool can provide customers Driving down the costs of energy with includes temperature controlled innovation is another illustration of warehousing, dry storage, blast how increasing specialisation within an freezing, tempering, packing, order open-system business model can foster picking, local and international innovation for networked groups of distribution, sampling and food testing, companies. logistics management and food brokerage. It has integrated a range of IT Walter Watson (WW) Ltd, and internet-based telecommunication Castlewellan, Co Down technologies with food processing logistics. These include web-based Our discussions with Walter Watson network management software and gave valuable insights into how a radio frequency functionality which has sophisticated, modern firm engaged in enhanced order picking accuracy, tracks the production of a range of complex movement of goods (receipt-order metal products could evolve in a rural
48 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 area not far from the border and thrive with annual sales approaching £30 in highly competitive domestic and million and 180 employees, setting an export markets. It also illustrated how a extraordinarily high productivity level. firm can start by manufacturing simple products destined for local markets, Bose (Ireland), Carrickmacross, but can grow to become a large and Co Monaghan sophisticated exporter. Our discussions with Pat McAdam, Walter Watson’s father was a blacksmith Bose director in Ireland, gave us with a shop next door to the small family an example of an extraordinarily home near Castlewellan, located about sophisticated, foreign-owned firm that 30 kilometres north-east of the border located in the border region in the late city of Newry. Walter, born in 1944, 1970s, originally hoping to source some became a welder, but after being laid of its supply chain locally (i.e. production off by his employer in 1967 he set up of wooden cabinets for the Bose top- a business to repair farm machinery of-the-range audio equipment), failed and later to make farm machinery and to find suitable suppliers and then put farm buildings. He extended his product in place its own supply facility. It also range to agricultural trailers (eventually illustrated how the valuable experience with hydraulic hoists), transport boxes, of a firm like Bose was largely ignored gates and silos. His core capability by the existing furniture sector in the was in steel fabrication and he fostered area, which has suffered a catastrophic relationships in Scotland with steel mills decline in recent years. at Ravenscraig and elsewhere. He built and sold hundreds of farm buildings in Bose Corporation, the global Scotland and the Republic of Ireland. All leader in loudspeakers and ancillary were pre-fabricated in Walter Watson’s audio equipment, was founded in facilities before shipping and erection Massachusetts in 1964. Its turnover on the customer’s land. The firm had its today is approximate $700 million own transport with access to roll on and and it has five facilities, including roll off facilities. its headquarters in Framingham, Massachusetts. It opened its Walter Watson expanded into the Carrickmacross manufacturing site in production of reinforcing steel and a 1978, attracted in part by the furniture new opportunity arose when a German making tradition in the region. In Pat company making overhead cranes McAdam’s words, importing cabinets closed its Bangor (Co Down) operation. was not economical. The idea was WW bought all of the unsold cranes, to get local suppliers to make the refurbished them and added guarantees high-specification cabinets, which for to create a market. Thus overhead acoustical reasons are made of wood. cranes became a third main line of business along with structural steel and As it turned out, Bose was not reinforcing steel. WW has continued successful in finding woodworkers to develop and grow up to the present who had experience in making wood
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 49 products at the tight tolerances and production systems to meet the demanded for audio systems. stiff competition coming from China Subsequently, Bose developed a state and elsewhere. The negative answer of the art manufacturing plant which surprised us and obliged us to reflect today employs just under 200 people. on the policy, institutional and other Much of the specific woodworking problems that prevented this world class expertise was obtained from a Bose centre of excellence from becoming a facility in Canada that had developed force for transformation that might have good woodworking practices over the assisted in the preservation of the once years. The Carrickmacross plant has strong but now rapidly declining furniture seven CNC woodworking machines for sector in the mid-border region. drilling, routing and milling operations. Much of the tooling is made in an Entrepreneurial firms and in-house machine shop. Furthermore, cluster dynamics the Bose plant recycles waste wood products into an environmentally clean To understand the industrial growth boiler system to provide all of its heat of a region our research focused on energy requirements. entrepreneurial firms as the engines of growth. We sought to address two The cabinet-making and electronic inter-related questions: where did new assembly plant is a model ‘lean’ entrepreneurial firms come from, and manufacturing facility, including a where did new groups, sectors or high-performance, self-directed clusters of firms come from? These work team organisational system. Mr are inter-related questions, since McAdam stated that productivity has entrepreneurial firms drive clusters and advanced by 50% since beginning the clusters create opportunities for existing lean manufacturing journey in 2007. entrepreneurial firms and new entrants. All of the features of the Toyota lean This simple proposition informed our manufacturing production system are research methodology and a very brief on display: JIT, SMED or single-minute overview of our findings follows. exchange of die, Kanban or visual information and scheduling system, Entrepreneurial Firms and 5-S Kaizen continuous innovation work organisation.8 Bose illustrates how Firm strategy is important and a world class manufacturing can work in variety of strategies existed. We a relatively small plant located in a rural found examples of high volume area in the Irish border region. production within single production units. Seagate (based in Derry City) As we left the plant we asked our host produces on a scale that matches if local furniture firms came by to study East Asian mass producers. Bose, the wood processing side of the Bose while on a much smaller scale, has plant in order to evaluate possible a one-piece flow, high-throughput, ways in which the more traditional Irish efficient plant in a niche market. Scale sector could upgrade its technology economies in segments of the dairy
50 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 and poultry industry are also important. context of reengineering the core Nevertheless, scale economies alone production system, in order to take full were rarely the sources of competitive advantage of new technologies and advantage. Flexible specialisation is the market opportunities. Often this was most common generic strategy. The precipitated by the transition to the common denominator was focusing second and third generation of family on a core capability but partnering for leadership. Simon Hunter, for example, complementary capabilities – but we established his ‘management service found creative applications depending agent’ business model by seizing the upon context rather than a formulaic opportunity of the internet and the web categorisation. to redesign the system by which service uniforms are designed, manufactured, Most of the successful companies in and delivered. This transition required an the Irish cross-border region pursued alliance with an IT company to develop a strategy of developing a distinctive a web portal system. But it also meant product/service and constructed the the construction of a new production production capability to deliver it. process at Hunter Apparel and new A number can be characterised as service offerings that could become a mid-size, indigenous, multinational resource for companies in other sectors. companies. Here we drew an This process of increasing differentiation unexpected lesson: these companies of capabilities and innovation has led to have radically reinvented themselves at the creation of a new business system least once as if they became a new firm. as envisioned by Simon Hunter. It also In fact, we might say that new firms were hints at how network alliances can be created out of previous incarnations incipient clustering processes. The fact of the same firm. Other times we find that Hunter Apparel is a successful succeeding generations of the same firm company has created a new in the form of the establishment of new opportunity to form a R&D alliance out of old production systems. Walter to create a material with built-in Watson, for example, moved from steel functionality that could revolutionise fabrication of agricultural implements, medical services apparel. to structural steel fabrication, to fabric mesh and pile cages, to cranes – all The process of developing a distinctive the while deepening the company’s capability is inter-locked with core capability in steel fabrication. The establishing ‘network alliances’. These transition to a range of reinforced steel alliances may be in other production products involved erecting a new, state units within a larger company (such of the art production facility. as Feldhues, based in Clones, Co. Monaghan) or they may be part of We found examples of ‘system incipient clustering processes. In any integration’ strategies or a process of case, we have found that an ongoing enterprise reinvention. In these cases process of focusing on core capability the new management leveraged legacy and partnering for complementary skills and capabilities, but within the capabilities underlies or sparks increases
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 51 in capability differentiation and derived market opportunities itself creates innovation activities in the participating opportunities for other firms. In fact, companies. These are examples of the even the failure to pursue emergent dynamic between internal organisation market opportunities by one firm and inter-firm relations. In the case of may give rise to the establishment of Castlecool, we found the emergence a new firm. Paul Short, for example, of an open-system business model in who later established his own which a series of service activities in company, had previously been a logistics and warehousing are shared finance manager for a company in to the mutual advantage of a range of the same sector. enterprises. Here the advantages are not merely cost economies of scale d) The inter-firm processes by which and scope: Castlecool is an innovative skills, capabilities and knowledge company that enables its partners to are deepened within a region can focus on what they do best and, at trigger the emergence of new sub- the same time, enjoy the benefits of sector growth opportunities. In this improved complementary business way, a region’s production base services. can be enhanced by transition from declining to growing sectors. Cluster dynamics The detailed examples of cluster We found that the important dynamics we studied in our research characteristics of clusters included the (mainly in food processing, aerospace, following: furniture and wood processing, timber frame housing and science-based a) Firms do not compete alone in the clusters) are not meant to be exhaustive. global marketplace but as members Further research would certainly of networked groups of firms. For reveal many more. We have at least this reason we needed to examine demonstrated that constructing and network alliances and other forms of searching company and other datasets inter-firm relationships. for regional concentrations of companies by sector can indicate ongoing or b) Firms compete in the global incipient cluster dynamic processes of marketplace by leveraging the skills, new firm creation, techno-diversification capabilities and knowledge bases and increasing capability differentiation. of the regions in which they are Industrial growth is not likely to happen embedded. without policies that foster these processes. c) Innovative firms make more than products: they advance the skills, Towards a Cross-Border Economic capabilities and knowledge base of Development Zone the region in which they conduct business. Moreover, the process There were some very positive findings by which innovative firms develop from our research project, but also specific capabilities in pursuit of new many negative findings. Positive findings
52 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Speakers and delegates at the Reviving the Border Region Economy conference, Cavan, 17-18 November 2011: (from left to right) Dr John Bradley, Dr Patrick Tobin, Professor Michael Best, John Perry TD, Minister of State for Small Business, Walter Watson and Sean Conlan TD. included the identification of some the border that presents the unique extremely successful and entrepreneurial challenge to policy makers if the border manufacturing enterprises in the border region is to be reintegrated into the region and the intelligent manner island-wide economy, and is to seek in which they made full use of the out and implement policies that address single island market (within the Single these exceptional challenges. European Market), the more open post- Belfast Agreement environment and the It was clear at the time of negotiation of dramatic improvements in some aspects the 1998 Belfast Agreement that there of North-South physical infrastructure. was only limited willingness to create an island-wide industrial development However, we also found many aspects strategy that would bring together the of the border region economy that two separate development agencies suffered from the peripheral nature of the in Dublin (the IDA plus Enterprise region, the economic policy implications Ireland) and Belfast (Invest NI). What of the border, and the interaction of was put in place was InterTradeIreland, these two issues. The first aspect – whose policy remit was to maximize peripherality – is shared by other regions the gains from North-South trade and of the island that are remote from large business co-operation. In other words, population agglomerations. The second its focus was on the whole island and aspect – the border-related policy fault not specifically on the narrower border line – is unique to the region. But it region, and, from its Newry base, it is the interaction of peripherality and
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 53 operated in the margins of the ‘national’ border region do not have the resources development agencies and other (financial and institutional) to overcome institutions based in Belfast and Dublin. the twin challenges of the peripherality and ‘border’ problems that are holding For the foreseeable future the separate back development. The fragmentation operation of the main Northern Ireland of local government organisation in the and Republic of Ireland development border region, as well as the three-way agencies is a fact of life, although division of existing local authority-based a degree of cooperation does take cross-border co-operation (East Border place, mainly in the sphere of island Region - EBR; Irish Central Border marketing as distinct from island- Area Network - ICBAN; and North wide industrial strategy. For regions West Region Cross Border Group – located internally within NI and the NWRCBG), compound the problem RoI, ‘national’ development strategies of fragmented cross-border operate fairly efficiently, and incorporate development initiatives. and encompass a wide range of other institutions and agencies that Any new approach to cross-border have a development remit (e.g. local development will need to advance government – county and district council proposals for the more efficient and – development activities, chambers of effective use of ‘national’ and ‘local’ commerce, higher education institutions, development resources in a manner training centres etc.). Our research that is consistent with current legal and highlighted the negative consequences institutional constraints on the island. of this situation for the economic revival Specifically, it needs to address how of the economy of the specific border local government on both sides of region. We now need to move to the the border should reinterpret its role next stage and develop ways in which in encouraging and supporting cross- the negative consequences of these border development through a better policy fault lines might be mitigated. understanding of how development can take place in a region that does not The need for a new development benefit from the advantages enjoyed by strategy for the border region arises more central regions clustered near the because its development is caught larger population agglomerations on the between two conflicting perspectives. island. Public services need to operate On the one hand the ‘national’ more efficiently in identifying activities development agencies have a remit that can take advantage of ‘good’ that legally obliges them to focus characteristics of the cross-border on their own jurisdictions, and they region, which include manufacturing and have different policy instruments and other strengths that were not always institutional frameworks that make it understood in past national and regional difficult to deal with cross-border issues, development planning. The central even when there is political willingness organising framework of such a strategy to do so. On the other hand, the local could be a cross-border Border government administrations and other Development Zone, the rationale for regional institutions that operate in the whose existence stems from the twin
54 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 disadvantages of peripherality and d) The national development agencies ‘border’ policy, and institutional fault are not sufficiently geared to lines that demand a uniquely targeted respond to the particular challenges approach that is different from and of the border regions; more serious than challenges facing e) The current higher level of incentives other peripheral regions of the island. permitted under EU regional state aids in the border regions in the Padraic White's proposition Republic expire in 2013 and may not be renewed subsequently. In his closing address to the ‘emerging findings’ conference of our Border Mr.White went ahead to advocate Region Economy study in Cavan in a recognition that the immediately November 2011, the former Managing adjoining border areas have common Director of IDA Ireland, Padraic White economic threats but also a strong (now Chair of Louth Economic Forum), common interest in maximising their characterised the development dilemma joint strengths. He believed that the of the border region in a way that district councils and counties along this complements and reinforces our own ‘Border Development Zone’ could drive research findings:9 economic development by cooperation and sharing successful ideas. He My proposition is that the immediate identified a number of current bilateral border areas risk being further initiatives in border areas that could ‘stranded’ economically for a number of form the initial basis of a Strategic current reasons including the following : Development Plan along the entire border area from Derry/Donegal to a) Central governments in both Newry and Mourne/Louth and which jurisdictions are grappling with could build on four key sources of European economic stagnation, indigenous enterprise and growth: and while focusing on national economic revival, regional priorities, i. SME enterprise in goods and and especially peripheral border services with an export potential; regions, fall down the pecking order ii. Tourism and recreation; of priority; iii. Agriculture, food and fish b) The public budget cutbacks processing; will result in virtually no current iv. Low carbon initiatives, energy saving discretionary spending in border and renewable energy. regions and very little capital investment ; The goal of such a Border Development c) FDI is increasingly concentrating Zone would be to stimulate a form of on the large cities and metropolitan development that is uniquely adapted areas where the companies are to the region, making maximum use more confident of getting a mix of of current ‘national’ resources (where skilled personnel as their projects in politically feasible) and stimulating Ireland become more research and the evolution of local resources and skills based; expertise of the kind that were identified
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 55 during our Border Region Economy in the NW region, which has suffered research project. The measure of greatly from the decline and virtual success of such a policy initiative extinction of its previous specialisation in would be the rebalancing of the border clothing and textiles. region economy, and particularly the north-west and mid-border regions, The third dimension is institutional, to so that it is less dependent on external identify the kinds of co-operative policy financial subvention, and is able to frameworks and actions that will be generate resources for development needed in the Border Development internally from a revitalised small-scale Zone if it is to have a greater prospect manufacturing and service sector of participating in island-wide prosperity. base that has the potential for higher Our previous research has suggested external sales and ultimately a greater that failures here tended to arise as international export potential. a result of knowledge deficits (e.g. imperfect understanding of the structure Three key dimensions of regional cross-border economies); institutional jurisdictional issues (e.g. There are likely to be three key legal constraints on the operation of dimensions to the establishment of a ‘national’ development agencies); policy Border Development Zone. The first and administrative gaps (e.g. small dimension is spatial, to characterise and under-resourced local government the extent of the border region development functions and capacities); economy, defined as the cross-border a lack of regional development focus region where the twin challenges of by the higher education establishments peripherality and ‘border’ policy fault and an inability to achieve close cross- lines need to be addressed. Earlier border synthesis between them; and research has shown that such a region weaknesses in non-governmental socio- is unlikely to coincide with any simple economic agencies (e.g. chambers of collection of existing county or district commerce, the IBEC-CBI Joint Business council boundaries. Council etc.). The objective here will not be to design new institutions from The second dimension is sectoral, scratch, since neither the resources nor to identify a range of sectors which the political will are likely to favour such are uniquely suitable and adaptable a root and branch approach. Rather, it for promotion within the proposed will be to propose ways that elements of Border Development Zone. Examples the existing institutional policy framework will include high technology and can be improved and refocused in environmental manufacturing in the order to overcome the weaknesses eastern cross-border region, which is caused by coordination failure, mainly a rapidly developing source of activity; by articulating a shared vision of the advances in food processing, as challenges faced within the proposed exemplified by a range of important Border Development Zone. existing clusters in the mid-border region; and a search for new The combination of these three manufacturing and service specialities objectives – spatial, sectoral and
56 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 institutional – will provide a better Local authorities in the border zone basis for dealing with the exceptional have the power to drive economic challenges of the Irish border region. development more than they or For example, the identification of others suspect if they pro-actively specific infrastructural deficits (such use the powers, funds and as the proposed bridge across leadership role they have in their Carlingford Lough to permit the territories. With a coherent strategic integrated development of tourism border plan, capitalising on their in both Carlingford and Mourne, or existing cross-border networks and the upgrading of the road network initiatives, they can make substantial connecting the north-west region to progress themselves in identified other road networks on the island) growth areas. With such a plan is best carried out where the spatial they can be persuasive in winning dimension is explicit, the sectoral support from their governments and issues are a key justification, and the from the EU and its funds. institutional dimensions are supportive and facilitating. The three objectives provide the natural context in which ENDNOTES to generate specific development proposals, to do so in a way that 1. We regard national policy failures facilitates the objective evaluation as exceptions rather than the rule. of likely achievable benefits, and to Hence, the maintenance of inward- ensure that the appropriate institutional looking tariff protection in the RoI for framework is in place to implement long after it was wise represented a policy decisions. failure of nerve that was exacerbated by isolation from global thinking. Specific examples of areas of The more recent catastrophic failure cooperation identified by Padraic of the banking system imposed White in his Cavan address included: huge costs on citizens, but has left campaigning for progression of the A5 the successful strategy of outward- route from Aughnacloy to Derry which oriented, FDI-driven national is relevant to connectivity through and development relatively unscathed. within the border zone; joint cooperation between Enterprise Ireland and Invest 2. Buchanan, C. and Partners (1968). NI in promoting clusters of industry in Regional Studies in Ireland, Report the food sector, renewables and high- Commissioned by the United tech ‘start ups’ in the border zone; and Nations on behalf of the Irish capitalising in a more structured way Government, Dublin: An Foras on the know-how and graduates of the Forbatha. Institutes of Technology in Letterkenny, Sligo and Dundalk and the University of 3. Bradley, J. and Best, M. Ulster and further education colleges in Cross-Border Economic Renewal: the NI border area. He concluded with Rethinking Regional Policy in Ireland. the vital observation that:
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 57 Armagh: Centre for Cross Border devolved government and Studies, forthcoming. international recession, Cavan, 18 November 2011. 4. Porter, M. (1990): The Competitive Advantage of Nations, London: Macmillan Press; Culliton, J. (1992): A Time for Change: Industrial Policy for the 1990s, Report of the Industrial Policy Review Group, Dublin: The Stationery Office.
5. Best, M. (2001): The New Competitive Advantage: The Renewal of American Industry, Oxford: Oxford University Press.
6. Jacobs, Jane (1986): Cities and the Wealth of Nations, London: Penguin Books.
7. Jacobs’ concept of import substitution should not be confused with the policy driven, tariff-induced strategy of import substitution implemented in the RoI between 1932 and the early 1960s. In a Jacobs city, import substitution initially serves local markets, but rapidly generates strong local firms capable of exporting.
8. See Best: (1990) The New Competition, Massachusetts: Harvard University Press, and Best (2001) The New Competitive Advantage, Oxford: Oxford University Press.
9. P. White (2011): ‘Re-thinking the Border Region Economy – A Way Forward’, conference presentation at Reviving the Border Region Economy in a time of peace,
58 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 NORTH-SOUTH RESEARCH COLLABORATION: A DROP IN THE INTERNATIONAL OCEAN
Brian Trench
Academic researchers in the Republic of Ireland and Northern Ireland have recently collaborated or are currently collaborating in several hundred projects. Information on these collaborations was gathered in a survey in December 2011 undertaken by Patricia McAllister of the Centre for Cross Border Studies on behalf of the Department of Education and Skills in Brian Trench Dublin. The survey respondents were research offices in the Republic’s seven universities, in the Royal College of Surgeons in Ireland and in nine institutes of technology in the northern half of the state.
The collaborations cover a wide range and University College Dublin are the of types: from very large international most active universities, and institutes biomedical projects with partners in Irish of technology in Dundalk, Letterkenny institutions on both sides of the border and Sligo – all in border counties – are alongside dozens more in institutions the most active in their sector (albeit at in other countries; through graduate a much lower level than the universities). education programmes in natural The research funding shared by sciences, engineering, humanities Northern and Southern collaborators and social sciences in which Northern in these projects ranges from a couple institutions are ‘devolved partners’, to of thousand euro or pounds to six- bilateral relationships between individual figure sums.The depth and strength of Northern and Southern institutions these cross-border collaborations are focused on applied research in energy apparently of highly variable significance and the environment. to those taking part. The survey data provided to the Department of The level of involvement of the Education and Skills will be subjected Republic’s higher education institutions to further analysis in the department. in North-South collaborations is highly However, without information enabling variable. On the basis of this survey, historical comparisons or comparisons it appears that Trinity College Dublin with the pattern of collaborations
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 59 between researchers in the Republic intensified by trends within science and researchers in other states, it and supported by developments is likely to be difficult to draw any in communications and transport. significant conclusions from the data. Research activity over the past couple of generations has been marked by A comparison across space can increasing specialisation, and micro- be made with information from the specialists may have to hunt further annual survey of approximately 3,000 and further afield to find colleagues researchers receiving support from with the same interests. On the other Science Foundation Ireland (SFI), the hand, large-scale research projects on principal source of research funding broadly defined topics - for example, in in the Republic. Figures derived from genomics or in particle physics – require the latest complete (2010) ‘census’ collaboration across the boundaries not show that SFI-funded researchers just of disciplines, including the newly reported they had academic or industrial emerging micro-disciplines, but also collaborations with 71 partners in of countries, in order to multiply the Northern Ireland, compared with 67 in potential sources of funding. Scotland and 40 in the Netherlands.1 Taking account of the much larger This trend towards specialisation number of research-active higher is facilitated by the very dramatic education institutions in Scotland and improvements of the past two decades the Netherlands than in Northern Ireland, in international telecommunications and this finding indicates that contiguity on specifically in internet communication the same island is a factor – though in academic research. Active perhaps not a major factor – in the collaborations, including sharing of data selection of research partners. resources, co-authorship of papers and organisation of seminars, are possible Changing nature of collaboration across continents and time zones without face-to-face contact. As many Assessing the strength and scope of academics observe from their own and cross-border research collaborations from colleagues’ experience, research requires some consideration of relations by email with colleagues in the changing nature of research other countries are often more intense collaboration more broadly. Research than those with colleagues in the in the natural sciences is remarkably same corridors. internationalised: a researcher who has worked 20 years in a laboratory in Asia The growing inter-disciplinarity of or Australia can join a lab in Europe or research is to some extent a product of North America and quickly resume work specialisation, but has other roots too. at a similar level of responsibility. Not Analysts of contemporary science have only can they do this, they actually do it: noted that it is more porous than was research scientists are highly mobile. traditional ‘academic science’, being more oriented to social application This internationalisation is being and more open to social influence
60 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 (e.g. Ziman 2000; Nowotny et al The availability of research funding 1994). Addressing big issues arising and the conditions attached to it are in energy demand, environmental a central concern in the increasingly protection, food security, global health collaborative and international research and other so-called ‘grand challenges’ of the early 21st century. Money may be necessitates multiple perspectives, and the single strongest factor influencing thus collaboration across departments, the research questions that are asked, institutions and indeed countries the approaches taken to answering and states. While these observations them and the relations formed in apply mainly to natural sciences and addressing them.Money for research engineering, research in humanities and is made available in different ways, at social sciences is beginning to look quite different amounts and with different similar in its organisation. priorities in different jurisdictions.
In the several contexts outlined, Access to funding researchers may choose collaborators on the grounds of shared or compatible Of course, researchers in the Republic of interests, approaches, methods and Ireland and in Northern Ireland both have facilities, as much as or more than access to funds from major international on the basis of physical or cultural sources such as the Wellcome Trust, proximity. But personal connections the US National Institutes of Health and shared values and attitudes do and the European Commission’s count, and we can see their influence in Framework Programmes. But here the development of some of the more different strategies are followed. sustained cross-border collaborations. Southern researchers have had a strong The convenience of common starting orientation to European Commission points or of being no more than a programmes for 25 years, repeatedly few hours’ journey time apart can be winning more than their juste retour from significant, even when it is balanced that source. For academic researchers against the possible contribution to in the United Kingdom, including research quality of relations with Northern Ireland, the main priority of well-established experts further afield recent years has been to conduct and exposure to different customs and publish research that counts well and perspectives. in UK-specific research assessment ratings (such as the inter-university In sum, we can say that there are Research Assessment Exercise/ compelling reasons within the conduct Research Excellence Framework). UK of research itself why researchers in research has been under-represented the two jurisdictions in Ireland might in EU collaborative projects just as prefer to seek collaborations outside Irish research has been relatively the island rather than inside it. When over-represented. For UK biomedical we add in consideration of research researchers, the Wellcome Trust is likely funding mechanisms, the forces driving to be a first port of call; in the Republic, researchers to look outside the island its presence is very much weaker – and are increased. weaker than it once was – and the
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 61 Health Research Board and Science only one inter-governmental programme Foundation Ireland’s biotechnology designed specifically to support programmes are the main targets of collaborative academic research. The grant proposal writing in the life and Cross-Border Programme for Research health sciences. and Education contributing to Peace and Reconciliation started in 2004 In both jurisdictions there are major and is now coming to an end, having funding programmes that are very supported seven projects and disbursed largely confined to their respective sides €6 million, equivalent to less than one of the border. Funding from UK research per cent of annual research spending councils does not cross borders on the island. This was a joint initiative, and nor does funding from Science and the first of its kind, between the Foundation Ireland, with the exception Department of Education and Science of a small amount of funding for energy in Dublin and the Department for research and for projects linked with US Employment and Learning in Belfast. institutions. During the bounteous Funding was provided under the EU ‘Celtic Tiger’ years a number of PEACE II Programme and was managed Southern institutions and programmes by the Higher Education Authority (HEA). (see below) widened their criteria to In 2004-6 the programme funded five include Northern researchers, but many projects, engendering collaborations of these opportunities have closed off in that might not otherwise have happened recent years. and involving four institutions in the Republic and three in Northern Ireland. In the larger context of research funding The programme had a policy-oriented worth hundreds of millions of euro or ambition to ‘help generate new policies pounds annually to researchers North for future peace programmes, to and South, the amounts dedicated to improve the effectiveness of existing promote bilateral collaborative research ones, and to produce new models for are very small. The governments collaboration’. Reflecting these origins in Dublin and Belfast have similar and aims, the projects were the subject commitments to developing knowledge of a major political and promotional economies in which academic and investment not usually attached to industrial research has a central place as such research. But there is little, if any, a driver of growth. The two governments evidence to be found of sustained share related concerns about declining collaboration arising from these projects. student interest in scientific and technical (sometimes labelled STEM) In 2008 a further €3 million was subjects, as potentially threatening the awarded to two projects in transport availability of high-level skills required in research and cancer research, in both a knowledge economy. of which Queen’s University Belfast was the Northern partner. A project However despite these common – on sustainability in transport, involving although also competitive – interests and Queen’s University, University of a shared island space, there has been Limerick, Trinity College Dublin and
62 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 The then Taoiseach, Brian Cowen TD, Provost of Trinity College Dublin, Professor John Hegarty, and Chair of the IBEC-CBI Joint Business Council, Brian Ambrose, at the IBEC-CBI/Universities Ireland North/South Postgraduate awards ceremony in Trinity College Dublin in October 2008.
Dublin City University, had the stated nanotechnology, diabetes, sensors, objective to ‘build an internationally cystic fibrosis, telecommunications, and recognised all-island research centre energy and sustainability. This scheme with leading research capability and facilitates submissions to the major capacity in computational science for US research funders, National Science sustainable design, manufacture and Foundation and National Institutes of materials, with the leadership to develop Health, through some of their funding all-island collaborative research which programmes. At time of writing, it is not will reinforce the Island’s advanced clear how active this scheme still is. engineering and manufacturing capacity’. This all-island research centre Overall, the peace dividend for cross- does not yet exist. border research collaboration has been small and has now all but dried up. One Further research funding born of the continuing programme is the relatively Northern Ireland peace process comes modestly funded programme for cross- through a US-Ireland scheme for border research in teacher education. projects involving partners in both parts This is run by SCoTENS (Standing of Ireland and in the United States. The Conference on Teacher Education, North US-Ireland R&D Partnership, initiated and South), which was established in in the early 2000s, aims to foster 2002 following a conference of teacher collaborations between academic educators looking at their role in the and industrial researchers in the three peace process and is managed by the jurisdictions, focusing on questions in Centre for Cross Border Studies (CCBS).
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 63 To date, over 70 projects have been simulations, telecommunications and given ‘seed funding’ up to a maximum the knowledge society have been of £6,000 and all are based on direct among the fields of study. In the fifth collaboration between Northern and cycle of PRTLI a total of €360 million Southern partners. The next round of is being spent on 36 collaborative project grants will be announced in projects, including these doctoral early 2012. A 2011 external evaluation programmes, across the disciplines. of SCoTENS noted that a minority Queen’s University and University of of completed research reports had Ulster are ‘supporting’ or ‘devolved’ high academic value but also that partners in several of these, but so too the funding programme contributed are universities and research institutes in to the development of professional Britain, United States and relationships and networks.2 continental Europe.
In another small-scale initiative, Discipline-specific schemes Universities Ireland, a CCBS-managed network which brings together the nine Among the discipline-specific research university presidents on the island, funding schemes, the Charles Parsons provides masters and PhD (first year) energy research awards initiated scholarships of €15,000 each for in 2006 by the Irish Department of postgraduates who wish to do further Communications, Marine and Natural study – including research – in the other Resources have supported PhD Irish jurisdiction. It awards five-six of studentships in Queen’s University as these scholarships annually. well as in Southern universities. The scheme is now administered by Science More support for bilateral collaboration Foundation Ireland as one of the very has come indirectly through the few in which SFI channels money to operation of broader research funding Northern Ireland. Particular Northern programmes. For example, the strengths in wind and wave energy are Programme for Third Level Institutions reflected in the projects funded under (PRTLI) operated by the Republic’s this programme. Higher Education Authority, has targeted some of the funding available under Also in 2006 the Irish Energy Research its fourth and fifth (2011-16) cycles to Council was established and specifically structured doctoral programmes. The charged to ‘have regard to the all- two Northern universities have been island dimension’ of its responsibilities. partners in some of these programmes, The council had one member with a which provide studentships and suites Northern affiliation, Professor Peter of shared taught courses for doctoral Crossley, then of Queen’s University, students in networks of institutions. now returned to Manchester University. The programmes cover a wide range The council consulted institutions, of disciplines and topics in humanities companies and individuals in developing and social sciences, as well as in its Energy Research Strategy for Ireland natural sciences and engineering: (2008).3 The University of Ulster’s Centre nanosciences, earth sciences, computer for Sustainable Technologies, which
64 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 F.E. 148x210mm Advert.indd 1 7/2/12 18:43:28 has well-established collaborations is being developed in co-operation with University College Dublin, was with Cork Institute of Technology and the only Northern group to make a the Irish Naval Service. Among its submission in response to the strategy ambitions is to build ‘the largest and document. ‘As all-island cooperation most significant marine energy research is highly recommended to aid in the group in the world’. Given that Ireland’s construction of a strong and dynamic island status is shared between two energy research base in Ireland, strong states, Northern partners – Queen’s representations need to be made University and University of Ulster – to Northern counterparts to ensure are an entirely expected presence, cooperation and avoid duplication,’ especially given Queen’s involvement in wrote the Centre’s director, Professor the world-leading Seagen tidal energy Neil Hewitt. project in Strangford Lough. But they are among a longer list of partners that This strategy document referred briefly includes higher education and research to the all-island context, and to the institutions on the Atlantic seaboard in ‘need for strong coordination, within Canada, United States and Brazil. Ireland, between north and south’” and to ‘existing R&D strengths on the Marine research involving cross-border island of Ireland’. However, the Energy partnerships has been supported by Research Map of Ireland produced the Beaufort Marine Research Awards in 2011 by the Sustainable Energy initiated in 2007 by the Marine Institute Authority of Ireland showed a relatively in Galway. These were explicitly open to weak representation of Northern Ireland ‘research groups located in Institutions in the ‘hotspots’ for various categories on the Island of Ireland (32 counties)’ of energy research, in the number of and Queen’s University researchers groups engaged in such research and have received €4 million of the €20 in the level of funding obtained for million allocated. it. Clearly, the all-island dimension of energy research is under-developed, Funding available from the European and the Irish Energy Research Council, Union’s INTERREG programme within now without Northern representation, the area encompassing the border has not been meeting recently. regions of Ireland and western Scotland is supporting BioMara, a €6 million joint The European Commission is the source UK-Irish project examining the feasibility of funding for collaborative research in of producing biofuels from seaweed. The ocean energy that is led by University project is based in Scotland and involves College Cork(UCC) and includes research teams in University of Ulster, Queen’s University Belfast as one of the Queen’s University, Dundalk Institute of 12 other partners. This CORES project Technology and Institute of Technology (2008-11) has been testing systems in Sligo. The project has additional funding Galway Bay. UCC’s principal initiative from regional and national government in this sector is the Irish Maritime and agencies bodies in Scotland, Northern Energy Resource Cluster (IMERC), which Ireland and the Republic.
66 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Also crossing the border, the AIRO was initially established as a pilot Republic’s Griffith Research Awards for project with INTERREG support and geosciences were given in 2007 to eight was broadened with funding from the projects involving teams in University Programme for Research in Third Level of Ulster and Queen’s University, Institutions in 2008-11. The National as well as in several universities, a Institute for Regional and Spatial research institute and a museum in Analysis (NIRSA) and the National the Republic. The projects received Centre for Geocomputation at NUI funding totalling €9.2 million. Under this Maynooth have led the project, with scheme, the geological surveys North the Armagh-based International Centre and South are participating in the Irish for Local and Regional Development, Geoscience Graduate Programme, Queen’s University and Dundalk Institute which makes taught modules available of Technology as academic partners. to PhD students in geosciences in institutions either side of the border. One of the longer-term North-South This programme was funded through research relationships is that between a Griffith Research Award to the Dublin Queen’s University’s highly successful Institute of Advanced Studies. QUESTOR international environmental research centre and Dublin City In a related collaboration, the geological University. In this case, the main flow surveys in the two jurisdictions are of money is – unusually – from North to also involved in joint survey work in the South. DCU became QUESTOR’s first border counties under the €5 million academic partner outside Queen’s in Tellus Border mapping project. This is 2005 and Professor Fiona Regan and funded mainly by the EU INTERREG colleagues at the School of Chemical IVA Programme, and the current phase Sciences in DCU currently have eight of the project is led by the Geological projects centred on PhD studentships Survey Northern Ireland with partners funded through QUESTOR. The centre Geological Survey Ireland, Queen’s undertakes and supports research University Belfast and Dundalk Institute that is industry-led and funded from of Technology. The collection of QUESTOR’s 50 industrial members’ geological data is intended to support annual fees and from state agencies in the management of soils, stream waters Northern Ireland and the Republic. In a and ground waters across the border small number of cases, funding from the counties. Additional funding has come Irish Environmental Protection Agency from the Departments of Environment, has supported research conducted in North and South. Northern Ireland.
INTERREG funding has also supported DCU proposals have been notably the All-Island Research Observatory successful in the annual competitions (AIRO) at National University of for funding allocated by decision of Ireland Maynooth, which is compiling QUESTOR’s industrial members. A demographic and other data in maps as further six DCU projects will be funded a resource for evidence-based planning. in the 2012 round. Professor Regan
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 67 observes that DCU’s applied research It would take detailed and probably approach represents a good fit with difficult investigation of the incentives QUESTOR, but also that cultural and disincentives to cross-border compatibility and easy physical access research collaboration to undertake facilitate the continuing relationship. a more complete assessment of the Currency exchange issues, sometimes present picture. As indicated earlier, the cited as a disincentive to cross-border larger context of research administration collaboration, have been addressed and culture would need to be taken in this relationship by fixing the into account. International comparisons exchange rate at the start of the three- with, for example, research relations in year projects. European cross-border regions where there are established inter-university QUESTOR is also the co-ordinator of an networks (such as the Oresund region EU-funded research training project with of Denmark and Southern Sweden, seven partners in Britain, Germany and the Upper Rhine region between Ireland. DCU academics helped write France, Germany and Switzerland the proposal for the €3.4 million project and the Dutch-NW German-Flanders and has funding through this project region) could be instructive. But it does to support five doctoral researchers seem fair to observe that academic investigating aspects of water quality researchers in the Republic of Ireland improvement. do not give particular preference to their counterparts in the other Irish jurisdiction Safefood, the North/South food when seeking out partnerships. safety promotion body, has funded over 90 research projects in the past On 11 -15 July 2012 Dublin will host decade. These have been spread the biennial Euroscience Open Forum around university departments, (ESOF),to which 5,000 researchers from state laboratories and independent all over Europe will come to deliver and researchers across the island, hear presentations and discussions though few have involved direct cross- on a wide range of subjects in the border collaboration. natural and social sciences. Of the 80 panel proposals approved for the In research on public health and on programme, just one is coordinated ageing, the Institute of Public Health in from Northern Ireland, reflecting the very Ireland and CARDI (Centre for Ageing small proportion of proposals received Research and Development in Ireland) from that source. The successful also engage academic and independent proposer works in ocean research and researchers from both jurisdictions, collaborates actively with Southern sometimes in direct collaboration. Both colleagues. In its planning of this event, groups receive funding from agencies the local organising committee, including in both states, though CARDI receives myself, did not consider the possible its main support from the charitable implications for Northern participation foundation Atlantic Philanthropies. of scheduling the conference during the height of the ‘Twelfth’ marching season!.
68 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Brian Trench is a former senior Public Communication of Science lecturer in the School of and Technology (Routledge 2008). Communications, Dublin City Before joining DCU in 1992, he was University and a former member of a journalist for 20 years. the board of the Centre for Cross Border Studies. He is a researcher and educator in ENDNOTES science communication and a participant in several EU-funded 1. Personal communication from projects in science in society. Science Foundation Ireland He has lectured in 15 countries on science communication, and 2. Posted at http://www.scotens.org/ published widely, most recently wp-content/uploads/2011-scotens- on science blogs. He is co-editor evaluation.pdf (with M. Bucchi) of Handbook of
Tel: +44 (0)75 0001 7268 Email: [email protected] www.eures-crossborder.org
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 69 3. Report and submissions posted at http://www.dcenr.gov.ie/Energy/Offic e+of+the+Chief+Technical+Advisor/ Irish+Energy+Research+Council.htm
REFERENCES
Gibbons, M. et al (1994) The new production of knowledge: the dynamics of science and research in contemporary societies (London: Sage)
Ziman, J. (2000) Real Science: what it is, and what it means (Cambridge University Press)
70 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 A PARADOX IN IRISH ATTITUDES: GARRET FITZGERALD AND THE NORTH-SOUTH RELATIONSHIP
Eoin Magennis
Dr Garret FitzGerald, twice former Taoiseach (1981-82 and 1983-87) and Minister for Foreign Affairs (1973-77), died on 19 May 2011. He is generally recognised, at home and abroad, to have been one of the outstanding Irish statesmen of the second half of the 20th century.When his name is mentioned in relation to North-South cooperation, it is usually Eoin Magennis with reference to his time in government and his involvement in various British-Irish initiatives. The most notable of these were the Sunningdale Agreement of December 1973 and the Anglo-Irish Agreement (AIA) of November 1985. In both initiatives the North-South elements (the Council of Ireland and the Anglo-Irish Intergovernmental Conference) were central. Indeed what was seen as Dublin interference in the shape of these new institutions became the focus of fierce and concerted unionist opposition.1
Garret FitzGerald’s interest in Northern Given his recent passing, it seems Ireland and the related question of timely to offer an exploration of Garret partition led him to identify a paradox in FitzGerald’s views on this border Irish attitudes. On the one hand partition paradox and actions to deal with it. This was a bad thing to be opposed and article opens by looking at Sunningdale done away with in order to reunite the and the Anglo-Irish Agreement and the island. On the other hand many, if not North-South institutions mentioned most, Irish politicians or public figures above. (Those wanting more detail on in FitzGerald’s lifetime had little interest these should refer to their voluminous in or knowledge of the North. Indeed, treatment in FitzGerald’s autobiography, his frequent visits to Northern Ireland All in a Life (1991)3. It then goes on and his writings about the border and to focus on the way in which he tried the North-South relationship arguably to resolve the paradox and looks made FitzGerald atypical in the Republic at FitzGerald’s belief that ideas, of Ireland.2 relationships and conversations might
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 71 change minds; his understanding that also Paddy Devlin of the SDLP. Indeed, dealing with the border posed a strong when FitzGerald showed Devlin the challenge for the South; and his view lengthy list of executive functions for that cooperation offered more in the way the new Council of Ireland which he of opportunities and mutual benefits had agreed in negotiations, the latter than threats to identity. It concludes with deleted many of these, arguing that what can only be an initial and hopefully too long a list would endanger unionist fair assessment of his contributions to agreement. FitzGerald was reflecting the North-South relationship. Irish government policy on the need for a strong Council which would begin Forming North-South institutions the process of removing the border. However, perhaps paradoxically, he The Sunningdale communiqué of was also clear in his view that the December 1973 announced agreement Council had the potential to offer an on a Council of Ireland comprising opportunity for reconciliation between a Council of Ministers from the Irish North and South.6 Government and the power-sharing Executive in Northern Ireland, a In the 1985 Anglo-Irish Agreement the secretariat to support this, and a North-South element was to be found consultative North/South Assembly. in the Anglo-Irish Intergovernmental The Council was to have executive Conference (AIIC). Article 2 established and ‘harmonising functions’ as well this institution, in which the Secretary of as having a consultative role on some State for Northern Ireland and the Irish policing functions within both states.4 It Minister for Foreign Affairs would meet was to prove a key stumbling block to regularly to discuss not only cross- unionist acceptance of the Sunningdale border issues (such as security and the Agreement, although FitzGerald promotion of further cooperation), but suggested later that the collapse of the also issues internal to Northern Ireland Executive had not been inevitable. At a (including the administration of justice). distance of over 30 years FitzGerald’s Although it was envisaged that the AIIC belief was that a combination of a failure might become less active if devolution of Britain to back the Agreement, of took off in Northern Ireland, a permanent the Irish Government to trust in public secretariat was established in Maryfield, opinion over changing Articles 2 and 3, outside Belfast, which became a and political tactics within both North focus for angry unionist protest and South led to the collapse.5 demonstrations.7 The AIIC was less of an executive body than a formalisation FitzGerald makes an interesting of the regular inter-governmental comment about the Council of Ireland discussions and summits since 1980. in his reminiscence on the Sunningdale 20 meetings had taken place and talks and communiqué. This is that he studies had been commissioned in this tended to push for stronger powers period to see where cooperation could for the Council, sometimes against the be promoted. reluctance not only of Unionists but
72 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 There has been much debate over approach that I had hitherto the importance of the AIIC, which the espoused.9 Irish Times said would give Ireland ‘a foothold in decisions governing The current North/South institutions, Northern Ireland’. The experience of the in the shape of the North South civil servants involved was that it was Ministerial Council (NSMC) and the largely concerned with political matters. six implementation bodies, were What limited practical cross-border established in December 1999, after cooperation there was tended to be more than a year and a half of intense driven by the beginnings of EU funding negotiations following the April 1998 and the work of the International Fund Belfast/Good Friday Agreement.10 for Ireland.8 There are significant differences from the Anglo-Irish Agreement structures, Not surprisingly then, Garret FitzGerald’s such as the executive functions of the memoir records the achievements of the implementation bodies, albeit within tight Anglo-Irish Agreement in terms of what remits, and the meetings of the NSMC became known as ‘confidence-building involving Irish Ministers and the Northern measures’ within Northern Ireland. Ireland Executive, rather than Direct Rule These included the Flags and Emblems Ministers. Garret FitzGerald (out of office Act, criteria for rerouting contentious for 11 years at this point) approved parades and updated Fair Employment of the bodies, although he also had legislation. Also, crucially, it marked particular hopes that they would fulfil a a distinct shift in his approach to the key economic function. At the time of North-South relationship. The Anglo- the Belfast Agreement he wrote that the Irish Agreement, to the fury of most bodies had ‘an important psychological unionists, was signed without their input. role to fulfil’ for Northern nationalists. FitzGerald dealt with this question in a However, he went on: characteristically direct fashion on the 25th anniversary of the agreement: If this new North/South relationship is to prosper, these bodies This decision represented a reversal must become much more than of my own earlier preference psychological boosts…they must for a solution agreed with our start to play a visibly positive role Northern unionist fellow Irishmen. in the development of the Northern That personal change of stance Ireland economy.11 reflected concerns about the scale of increased support among the Two ideas suggested themselves to Northern minority for Sinn Fein/IRA, FitzGerald: the creation of economies which, we feared, might tempt the of scale in energy (involving a single IRA to raise its level of violence to a regulatory agency) and joint inward civil war scale. Also, the cumulative investment promotion ( involving impact of unionist intransigence the merging of the IDA and the then over the preceding 15 years had Industrial Development Board in eroded confidence in the alternative Northern Ireland). The first of these has
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 73 been tackled on a North-South basis, a time when Northern Ireland was very although without a single regulator, much off the Southern political agenda while the second has been ignored in – something which seems strange to a the argument about how to use lower contemporary reader more used to the corporation tax (as in the Republic) to cynical (and often untruthful) art of spin. attract FDI to Northern Ireland.12 The article openly targetted many of the ‘sacred cows’ underpinning demands Conversations, ideas and for Irish unity and argued that in future relationships any North-South relations ‘ would be based on wholehearted acceptance Moving from the creation of institutions of the principle that political unity must to the development of arguments and/or be preceded by a unity of hearts… the use of persuasion to further North- the government of Northern Ireland as South cooperation and understanding, a provincial administration meanwhile we come to the importance placed by would receive the unequivocal Garret FitzGerald on conversations, recognition that is its due.’14 writing and cultivating friendships. Many of the reminiscences about One reason that Garret FitzGerald FitzGerald centre, mostly genially, on his gave for his interest in the North was loquaciousness and almost professorial his personal connections. His mother, style. Cabinet meetings were lengthy Mabel McConnell, was from a prominent affairs and so too could be inter- Belfast Presbyterian business family governmental talks. In November 1982 and he was unusual among his peers Margaret Thatcher reported on one in spending a lot of time in Northern such meeting and James Molyneux, Ireland, visiting relatives as well as leader of the Ulster Unionists, ironically political figures. Family holidays were commended her ‘on her fortitude spent there during his childhood with the yesterday in listening to Dr. FitzGerald for McConnell relatives being those closest some five hours. It may have seemed a to him. FitzGerald knew he was different, little longer.’13 and in a 1956 Studies article comparing the economies of North and South he However, this very characteristic castigated his fellow Southerners for was part and parcel of Fitzgerald’s never visiting the North and the media passionate belief that people could for ignoring news beyond sectarian be persuaded, and that ideas and disturbances.15 conversations were important in rethinking what had become known as In later life FitzGerald endeavoured to the ‘Northern Ireland question’. This was continue and develop his connections a quite deliberate policy and one which with the North. This extended beyond he pursued even before his entry into family as his career took off. For politics in 1965. For example an article, example, as a lecturer in political written for the journal Studies in late economy in UCD he organised first 1964, was specifically aimed at making a joint visit by Irish and Northern Irish public his political ideas on the North at economists to Brussels in 1962,
74 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Dr Garret FitzGerald and Margaret Thatcher after signing the Anglo-Irish Agreement in November 1985. and then annual meetings in the Chancellor of University of Lancaster Ballymascanlon Hotel outside Dundalk and former Professor of Economics at of ‘dismal scientists’ from both sides of Queen’s University Belfast – through the border. He also accepted invitations a paper he gave to the Statistical and to lecture, especially in Belfast. Two Social Inquiry Society in 1954, which cases of this are a talk given to a prompted FitzGerald to write his own predecessor of the SDLP, National comparison of the two Irish economies. Unity, in 1959, and another in Queen’s Ryan, Professor of Industrial Economics University in February 1975 on the Irish at Trinity College Dublin, was also a presidency of the EEC.16 longstanding colleague in academia and on public bodies. Both speakers noted One example of a by-product of this the poor state of the Northern Ireland relationship-building, intellectual and economy and its bleak prospects political, was the presentations by while it continued under UK regional two leading economists, Sir Charles policies. However, they did not pander Carter (from the North) and Professor to nationalist sympathies either, as Louden Ryan (from the South), to the they pointed out that the South was New Ireland Forum in 1983. Carter not in a position to make reunification and Ryan were both well-known to economically attractive.17 FitzGerald. He knew Carter – Vice-
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 75 Carter and Ryan’s submissions to the South, surveyed at some length the the Forum were central to another origins of the conflict, and proposed sometimes sceptical study of the solutions including the Council of consequences of North-South economic Ireland.20 integration.18 This was part-written by a Northerner well-known to FitzGerald A challenge to the South and a key figure in the rethinking of anti-partitionism in the 1950s. Garret FitzGerald was not unaware Professor Norman Gibson had written that his ideas on the North-South a pamphlet in 1958 which provided relationship would challenge opinion a Northern perspective on partition in Ireland. The clearest statement of and North-South relations which was these ideas came in the book Towards neither unionist nor nationalist. Gibson a New Ireland, published in 1972 when concluded that partition was unlikely Stormont had been abolished and the to end any time soon, if at all. Despite, conflict in Northern Ireland threatened or perhaps because of this, ‘every to spill over into the South.21 Again the opportunity for mutual cooperation [with Northern input is made clear in the Ireland] must be taken and welcomed.’ preface, with thanks to Canon Eric Elliott The pamphlet was part of the ‘rethinking of the Church of Ireland, the civil servant of the irredentist Irish approach to Terry Stewart and the economist John Northern Ireland’ to which FitzGerald Simpson for their help. Reconciliation, contributed.19 Again, one is left with the he stressed, was the priority, not only impression that such personal networks within the North, but also between North mattered to FitzGerald even when the and South. ideas they produced were not exactly to his liking. The idea of how to become ‘good neighbours’ was then explored in the Throughout his life FitzGerald made sure rest of the book. Partition is presented that his ideas were widely disseminated by FitzGerald as having had many through journalism, lectures and books. negative effects, from accelerating For example, he described in 2004 economic differences between the two how he wrote the first of 1,700 articles states to preventing a secular system for the Irish Times in December 1954, of education and the development of beginning first with university statistics left/right politics within both. Indeed, and then moving into economics and in one section, he bemoans how a political commentary. Again, the North perceived need for Ireland to follow featured regularly: a web search of these Northern Ireland (or rather UK) policy articles shows almost 7% dealing with had led to differences with European Northern Ireland. His many lectures decimalisation and the continued were also intended to shape debate and economic dependence of both on British discussion. In one, given to the Oxford rather than new EEC markets. Given University Students Union on the eve of the debates in 1972 about the future the 1973 Sunningdale talks, FitzGerald of Northern Ireland, Garret FitzGerald spoke of the ‘spirit of reconciliation’ in offered a full chapter on the need for
76 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 reforms there. He then followed that undisturbed in our comfortable, with a chapter on the changes needed partitioned – and in many ways in the South to create a more ‘liberal partitionist – State. and pluralist society’. Here were the beginnings of the divisive ‘constitutional FitzGerald’s view was that partition crusade’ he headed while in government posed a severe challenge to the Irish in the early 1980s, itself an effort to State and populace, one which it had persuade unionists that unity did not repeatedly failed to meet. He believed pose a threat. that successive Irish Governments for the first 50 years of the State had Later, in a 1997 article, in a completely refused to take the issue seriously. changed context, FitzGerald again A large part of the problem was the laid down a challenge, this time for a uninformed and lazy belief that the much-needed debate in Ireland about border was a temporary thing which the North/South institutions.22 In the would disappear either through a Framework Documents agreed between Boundary Commission reducing the the British and Irish Governments size of the new Northern State or in February 1995, it was proposed through Irish pressure on Britain through that significant functions of the Irish international channels. In summary, anti- state could be transferred to joint partitionism was a policy that everyone cross-border control, including export paid lip service to but noone expected marketing and promotional activities, to work.23 culture and heritage, environmental management of landscape and nature, Even the anti-traditionalist FitzGerald and EU programmes and policies. may have succumbed to this at times. This debate would also prepare Despite its novelty, Towards a New opinion in the South for the potentially Ireland not only presented an argument radical changes coming and show for Irish unity, but also examined various unionists that they might have more scenarios in which this could happen. to gain from cooperation. In addition, In articles in May 1998 arguing for the discussion could both reassure Northern amendment of Articles 2 and 3 in a nationalists that Ireland was serious referendum, Fitzgerald wrote that noone about the North/South institutions and would now take his 1972 arguments put pressure on the public service in seriously. And in his memoirs he mused the South to respond positively to the on a possible lost opportunity in 1973- change. In summary, in FitzGerald’s 4 to hold a similar referendum. This view, the North/South instititions: might have helped the Sunningdale Agreement, though FitzGerald was also might well involve…a serious aware that a failed campaign to amend challenge to the unconscious Articles 2 and 3 would have been assumption by most people in this very damaging.24 State that we can rely on Northern unionists to minimise North/South A centerpiece of FitzGerald’s intellectual institutional links so as to leave us contributions to undermining traditional
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 77 anti-partitionist arguments was the after 1969, there were signs that the New Ireland Forum report of 1984. One differences between the two states account of this takes the view that it were diminishing even before then. In a was ‘a monument to the evasions and comparison written in 1967, he noted ambiguities’ in Irish policy on partition.25 that industrial output was then broadly FitzGerald himself seemed well aware similar, although the necessity of a more in later reflections of its weaknesses, focused policy to attract FDI to Northern especially the ‘ritual obeisance’ to the Ireland was stressed. By this time, ‘unitary state’ over the joint authority however, the main reason for the gap or confederation options. However, the between North and South was the lower report clearly stated that consent in both level of agricultural output in the latter. states would be needed for any final As he forecast, better industrial policy, agreement; put other options on the membership of the EEC and changing table based on North-South cooperation farm practices saw the South outstrip rather than just a demand for unity, and the North over the next three decades. did not evade the economic implications So much so that just as the Celtic of reunification.26 Tiger was taking off in 1997 FitzGerald pointed out that personal disposable These economic implications posed income in the South had overtaken another challenge to the South, which the North.28 This point was made in an had been explored by FitzGerald from argument not for political unity but for the 1950s onwards. In this early period economic cooperation. the economic output per head and standards of living were very much in Mutual benefits and opportunities favour of Northern Ireland (perhaps by 20-30%) and the gap seemed to be Garret FitzGerald often posed the widening. The North’s major advantages question of whether North-South lay in higher productivity in agriculture cooperation could aid the two and industries such as engineering and economies and his answer was textiles. However, even then, before the consistently ‘Yes’. In an article after expansion of the Lemass years, there the Lemass-O’Neill talks in January was a future pointer in the finding that 1965, he argued strongly that such in other industries the South was ‘more cooperation could have mutual benefits. highly developed’. FitzGerald’s impish He focused on a then favourite topic of humour can be found in comparisons his, tourism, and argued that whatever of consumption which showed that benefits might come to the North from the North spent more on amusements, promotion of travel to the UK, these perhaps showing that ‘the inhabitants of would be outstripped by cooperation that area are less dour than is commonly with the Irish Tourist Board in overseas assumed!’27 promotion.29
Although FitzGerald was always This was an argument he pursued clear about the havoc wreaked on consistently though the Sunningdale the North’s economy by the violence talks, the Anglo-Irish Agreement
78 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 0412 Armagh A5_Layout 2 01/02/2011 17:13 Page 1
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WHERE PAST MEETS PRESENT armaghcityhotel.com facebook.com/armaghcityhotel 2 Friary Road, Armagh Tel: 028 3751 8888 and later. By the time of the Belfast relative shares of the island’s economic Agreement it was becoming clear output in 1997 (75% from the South, that the major benefits of peace and 25% the North).31 Just as importantly agreement would accrue to a lagging he made the point that the statistics Northern economy. Cross-border trade could alert people ‘to weaknesses was seen as bringing advantages to and deficiencies that could usefully be small firms in the North, although it tackled by drawing on the experience would not transform that economy. of the neighbouring area.’ This is almost What was needed instead, FitzGerald a direct copy of a metaphor in a 1956 argued, was lower corporation tax for article in which he noted that the South the North at the same level as the should learn from the North, as anyone South’s, plus a joint inward investment would take an interest in a neighbour’s promotion body. He hoped that the garden ‘especially if his crops of fruit economic benefits that might accrue and vegetables are notably more would outweigh any ‘ideological hang- successful’.32 up about North/South joint action in significant areas of economic policy.’30 The North-South relationship and its barriers It is useful to note that Garret FitzGerald could see the challenges (and sacrifices) In reflecting on his ideas and actions inherent in such cooperation. Back in – and in the interests of balance – an the 1960s it posed a threat to vested argument can be made that there were agricultural and political interests in the barriers to Garret FitzGerald’s cultivation Republic, as well as to energy policies of the North-South relationship. The first based on turf production. In the 1990s of these resulted from his frustration with and 2000s the price to be paid by joint what he saw as unionist intransigence. inward investment promotion might be This probably began with the collapse in those towns and counties across of the Sunningdale deal in 1974 and Ireland which would lose out in a more continued into the 1980s. Although this competitive all-island FDI market. did not break his links with the North, However FitzGerald generally chose there is no doubt that the relationship- instead to focus on the mutual benefits building on which he placed much that might emerge, including from a emphasis would have been sorely better knowledge and understanding of tested, particularly after the Anglo-Irish policies in the other jurisdiction. Agreement. A second not unconnected barrier was identified by FitzGerald in As befits his early intellectual interests, later years. His view was that unionist he found the 2001 joint statistical politicians and their economic advisers compilation North and South: A at the time of the Belfast Agreement Statistical Profile a joy to read and in had chosen stagnation over potential particular, with his love of statistics, cooperation and joint development, the differences in marriage rates, particularly in the economic sphere.33 deaths from various causes and the Both these arguments led to suspicions
80 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 at the time that he really did not initiatives of the 1970s and 1980s also ‘get’ unionists and the depth of their laid the framework for the 1998 Belfast suspicion about or antipathy to closer Agreement and the institutions which relations with the South. have emerged out of that accord.35 Above all, Garret FitzGerald’s political The third barrier seems to have come and intellectual actions and arguments from FitzGerald’s annoyance at British undermined many key preconceptions insistence on a snail’s pace development about North-South relationships and laid in cross-border cooperation in the the foundations for their unprecedented 1970s. This he blamed on the failure of normality and ordinariness today. the British authorities, be they based in London or the Northern Ireland Dr Eoin Magennis is a leading Office in Belfast, to progress the very local historian of the Armagh- practical joint studies on the impact of Down area, and an author of the border, some of which had been previous articles in this journal and proposed as early as 1963. Indeed, he elsewhere on the development of did not contradict Jack Lynch’s claim cross-border economic, business in 1978 that the latter was ‘surprised and political cooperation. He is a and disappointed’ at how little progress former information and research had been made in the area of practical officer with the Centre for Cross North-South cooperation over the Border Studies. The author wishes previous four years’.34 A final barrier, to acknowledge the advice, which FitzGerald himself pointed to, information and encouragement was his own failure (along with most provided by Professor John Coakley, Irish politicians of his generation) to Dr Michael Kennedy, Jani Lopez and push harder to challenge anti-partitionist Dr Lesa Ní Mhunghaile. views in the South. This centred on what might be called ‘missed opportunities’ ENDNOTES to amend Articles 2 and 3 of the Irish Constitution much earlier than in 1998. 1. For a flavour of the arguments against the Anglo-Irish Agreement It is the belief of this writer that these see Victor Gordon, ‘The day barriers or limits to pursuing the Unionism spoke with one voice’, North-South relationship should not Belfast News-Letter, 23 Nov. 2010. be allowed to hide the extent of Garret FitzGerald’s contribution to highlighting 2. This is something that British the issue in both Ireland and Northern officials noted when they contrasted Ireland. He succeeded in tackling FitzGerald to Jack Lynch and his the ‘border paradox’ and challenging Fianna Fáil ministers who ‘did not people, particularly in the South, to visit the province regularly nor do take partition more seriously rather than they have any direct contact seeking comfort in well-established and with unionists.’ See National largely outdated rhetoric. His political Archives (London), FCO 87/699, 18 Nov. 1978.
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 81 3. In his revised memoir, Just Garret Cross-Border Cooperation in the (2011, p.383), Fitzgerald makes the Republic of Ireland and Northern point that he wrote 40,000 words Ireland (1999), especially chapters 3 on the Anglo-Irish Agreement in All and 6. in a Life (1991). The views of other officials involved in the AIA and the 9. Just Garret, 401-2; Irish Times, 13 Belfast Agreement can be found Nov. 2010. in the transcripts of the ‘witness seminars’ organised by the Institute 10. See Michael Kennedy and Eoin of British-Ireland Studies as part Magennis, ‘North/South Agenda- of their seminar series entitled Setting in the 1960s and 1990s: ‘Breaking Patterns of Conflict: Plus ca change?’, Journal of Cross Britain, Ireland and the Northern Border Studies, 2 (2007), 34-53. Ireland Problem’. 11. See articles in Irish Times, 25 Apr. 4. For a bracing analysis of this 1998 and 27 Mar. 1999. agreement, see Christopher Farringdon, ‘Reconciliation or 12. There was a brief debate in October irredentism?: The Irish government 2007 when the chairman of the and the Sunningdale communiqué Ulster Bank Group, Alan Gillespie, of 1973’, Contemporary European wrote about the gains to the island History, 16 (2007), 89-107. that could arise from a merger of the IDA and Invest NI’s inward 5. Just Garret, pp.255-7. investment wing. The idea was rejected by various ministers in 6. Just Garret, pp.246-8. Also see the NI Executive. See Irish Times, National Archives of Ireland (NAI) D/T 3 Oct. 2007; Irish News, 4 Oct. 2004/21/: Noel Dorr, draft Council of 2007; Interview on North-South Ireland, 16 April 1973; and NAI D/T cooperation with First Minister Peter 2004/21/3, Memo for government Robinson, Journal of Cross Border from Garret FitzGerald, 30 July Studies in Ireland, 4 (2009), p.18 1973. 13. Report of House of Commons 7. For details on the Anglo-Irish debate on Anglo-Irish summit, Agreement see Brendan O’Leary, 8 Nov. 1982 ‘The Anglo-Irish Agreement: (Hansard HC/ 46/147-53]. meanings, explanations, results and a defence’, in Paul Teague 14. ‘Seeking a national purpose’, (ed.), Beyond the Rhetoric: Politics, Studies, 53 (1964), 337-351. the economy and social policy in Northern Ireland (1987), 11-40. 15. ‘The Irish Economy North and South’, Studies, 45 (1956), 373-88, 8. Quotation from Irish Times, 16 p.373. Nov. 1985. Also see Etain Tannam,
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• Newry • Belfast • DuNgaNNoN • DuNDalk www. fpmca.com 16. Just Garret, pp. 79, 91, 258. strongest attack on this lip service can be found in Clare O’Halloran, 17. New Ireland Forum, Report of Partition and the Limits of Irish proceedings (1984), public session Nationalism (1987). no. 2, pp.6-16. 24. Just Garret, pp.256-7; Irish Times, 18. Davy, Kelleher and McCarthy Ltd 9, 23 May 1998. with a commentary by Norman Gibson and Dermot McAleese, The 25. O’Halloran, Partition, p.xviii. macroeconomic consequences of integrated economic policy, planning 26. Just Garret, pp. 384-7. and coordination in Ireland: A study prepared for the New Ireland Forum 27. ‘Irish Economy North and South’, (1984). pp. 374-6, 380-1, 382.
19. Norman Gibson, Partition Today: A 28. Irish Times, 13 Sep. 1967, 4 Oct. Northern Viewpoint (1958); ‘Ireland, 1967, 5 Dec. 1998. Britain and Northern Ireland’, in Garret FitzGerald, Reflections on the 29. Irish Times, 27 Jan. 1965. Irish State (2003), p.176. For the challenges to the prevailing thinking 30. Irish Times, 28 Nov. 1998. led by a family friend of Fitzgerald’s parents, see Daithí Ó Corráin, 31. Central Statistics Office/Northern ‘Ireland in his heart, North and Ireland Statistical Research Agency, South: The contribution of Ernest North and South: A Statistical Profile Blythe to the partition question’, Irish (2000). Historical Studies, 137 (2006), 61-80. 32. Irish Times, 13 Jan. 2001; ‘Irish Economy North and South’, p. 374. 20. Irish Times, 4 Dec. 2004, 8 Nov. 1973. The reporter in the earlier 33. Irish Times, 8 Mar. 2008. article, somewhat mischievously, hinted at the length of the speech as 34. Dáil Debates, 5 Feb. 1975; NA audience numbers reduced by half FCO/598; Notes on Fianna Fáil Ard in a cold hall! Fheis, Feb. 1978.
21. The references to Towards a 35. For an interesting reappraisal New Ireland come from the 1973 see Arthur Aughey and Cathy paperback edition. Gormley-Heenan, ‘The Anglo-Irish Agreement: 25 Years On’, Political 22. Irish Times, 15 Nov. 1997. Quarterly, 82/3 (2011), 389-97.
23. This is best treated in ‘Ireland, Britain and Northern Ireland’, pp.172-7. The
84 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 CROSS-BORDER HOSPITAL PLANNING IN IRELAND: LEARNING FROM LOCAL SUCCESS STORIES
Shane McQuillan and Vanya Sargent
“Our hospitals are too many, too small, and too independent of each other. The available resources are too thinly spread.” This quote was taken from the FitzGerald Report into hospital services in the Republic of Ireland, published in 1968, 44 years ago1. It remains true, if not quite so dramatically true, of hospitals in both Northern Ireland and Republic of Ireland today. Shane McQuillan
The provision of acute hospital services in Ireland has, for many years, been a matter of significant debate, with much of the focus on the location of hospitals and the public and political concerns surrounding services being removed from smaller hospitals and centralised within larger, regional units. So what has changed since 1968, we may ask, given the number Vanya Sargent of academic papers, consultancy reports, government reviews and the like which have been published in the intervening years? Perhaps the main difference is the sheer reduction in scale: in 1968, the FitzGerald report found that there were ’169 separate hospitals providing acute medical, surgical and maternity services’ in the Republic of Ireland, as opposed to the 51 public hospitals now operating, along with 18 private hospitals.
In recent times, we have seen the numbered: instead it recognises that greater centralisation of clinical services the role which these hospitals play is within larger, regional hospitals, more appropriately focused on those reflecting the fact that more complex services which do not require complex work requiring multidisciplinary clinical clinical interventions or lengthy inpatient input can only be delivered safely stays, enabling them to concentrate and efficiently within such institutions. on providing diagnostic services, day This does not necessarily mean that procedures, outpatient appointments, the days of smaller hospitals are
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 85 minor injuries clinics, and other reviews over the years has adequately important activities of this nature. addressed is the question of cross- border acute care provision: services It is also clear that this trend for being specifically developed and consolidating hospital services is delivered in an acute hospital in one continuing. Over the last five years, the jurisdiction to serve the identified needs Health Service Executive (HSE) has been of client and patient populations on actively involved in the reconfiguration both sides of the border, rather than of acute hospital services across the simply in their own territory. For the most Republic of Ireland, with particular part, experience up to very recently focus on the north-east, the mid-west, shows that the efforts of the two health the Cork and Kerry region, and other systems, North and South, have been initiatives in Dublin, Roscommon and directed very specifically to meeting the elsewhere. The Cancer Control Strategy needs of their own populations, with little introduced in 2006 saw the transfer of reference being made to those requiring all major cancer treatment to the eight similar services on the other side of designated Specialist Cancer Centres, the border. with a number of smaller hospitals no longer providing treatment for all forms Of course, there are many occasions in of cancer. which people living in one jurisdiction are either forced to use hospital services In Northern Ireland a similar situation on the other side of the border (for prevails. Over the last decade the example, people suddenly taken ill or configuration of acute hospitals has involved in accidents), or choose to been reviewed and analysed on access services across the border for several occasions, culminating in various reasons (for instance, maternity recommendations contained within deliveries at Daisy Hill Hospital in Newry a major report arising from a wide- to mothers resident in County Louth ranging review of health and social care because they are unhappy with such services in Northern Ireland, published services in hospitals in Louth). in December 20112. The Compton Report identified that 10 acute hospitals Many people within the border region in NI currently serve a population of 1.8 have extensive networks on both sides million, and suggested that a reduction of the border in terms of family ties, is necessary in order to bring Northern work, education, friendship and so on, Ireland into line with other areas of the and it is therefore quite natural that UK with similar-sized populations. The there will be an element of fluidity with review team concluded that it is only regard to access to acute care in the likely to be possible to provide resilient, border region hospitals. What seems to sustainable major acute services on be almost completely absent, however, five to seven sites in future, and that is cohesive planning which takes into significant change will have occurred by account the developing needs of the 2016-17. population on both sides of the border, and attempts to develop configurations What none of these various studies and of care which meet those needs and
86 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 are not geared exclusively to the service In March 2008 the Centre for Cross requirements and funding of one or Border Studies published a further other health system. paper – 'Surveying the Sickbeds: initial steps towards modelling all-island Cross-border health research hospital accessibility' – in which it examined the possibilities of spatially Although the two health systems have exploring the accessibility of present been slow to come together for joint and future hospital provision, with service planning initiatives, some useful particular attention paid to the cross- research studies have been published border region5. in recent years and have explored options for developing cross-border In light of the above research, the Centre hospital care in a more structured for Cross Border Studies, with funding and integrated fashion. The Centre from the EU INTERREG IVA programme for Cross Border Studies (CCBS) has through the Special EU Programmes been particularly active in this field, and Body, commissioned further research has commissioned a series of reports on the planning of hospital services examining the potential for achieving in the border region. The 2009-2011 significant change. As long ago as 2001 project, Exploring the Potential for the Centre published a wide-ranging Cross-Border Hospital Services in the report, Cross-Border Co-operation in Border Region, comprised two strands. Health Services in Ireland, by a team led The first strand examined the issue by Dr Jim Jamison of Queen’s University of public participation in the planning Belfast and Professor Martin McKee of acute hospital services. This was of the London School of Hygene and undertaken by Ruth Taillon, CCBS Tropical Medicine. Deputy Director, and a substantial report, The Role of Community A 2007 report, Removing the Barriers: Involvement in Planning Hospital an Initial Report on the Potential for Services, outlining the importance of Cross-Border Co-operation in Hospital such participation, was published in Services in Ireland, concluded that October 2010. there was a clear case for joint hospital planning and rationalisation in the The second strand, related to the border region. The report3 documented development of a modelling framework differences in strategic policy between for cross-border acute hospital services, the two jurisdictions: for example, there culminated in a report published in appeared to be a greater premium on December 2011, Unlocking the Potential accessibility in Northern Ireland than in of Cross-Border Hospital Planning on the Republic. There were also questions the Island of Ireland, written by the raised in respect of future acute hospital authors of this article, Shane McQuillan provision in the North-East region, and Vanya Sargent of Horwath Bastow suggesting that account needed to be Charleton6. This report examined the taken of services available across the potential for the development of acute border. Similarly, in April 2008, an OECD cross-border services by exploring a report highlighted the latter issue4. number of clinical areas, including ENT
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 87 (discussed in this article in more detail); and continuing care; mental health; orthopaedic surgery; acute mental population health and disability. health services; paediatric cardiac surgery; and cystic fibrosis services. CAWT’s work now has a very practical focus, and is benefiting patients in Cooperation and Working a direct manner by making available Together (CAWT) treatment in border hospitals which previously was not available locally, or One cross-border health partnership where capacity problems existed. The which has been making a difference partnership works to a series of defined is Cooperation and Working Together criteria which candidate projects must (CAWT), which celebrates the 20th meet, including the requirements that anniversary of its inauguration in 2012. they must: CAWT is a partnership between health • contribute to cross-border core and social care providers in Northern health services, in line with the Ireland and the Republic, and facilitates CAWT partners’ strategic and cross-border collaborative working service plans; between those providers. CAWT’s • demonstrate health and/or social region includes counties Donegal, Sligo, gain, impacting directly on patient / Leitrim, Cavan, Monaghan and Louth client care, and bring added value; in the Republic, and counties Armagh, • be based on common and identified Fermanagh, mid- and west Tyrone, cross-border needs; much of Derry, and south Down in • reduce inequalities and the North. disadvantage, facilitate access and equity and ensure social inclusion; In its early years, much of CAWT’s • show true partnership with evidence activity was focused on research of community and voluntary sector projects and on analysing the future engagement and input into the potential for introducing more planning and delivery process; collaborative approaches on a cross- • improve patient/client access to border basis. At present, on behalf of primary and secondary care; the two Departments of Health, CAWT • have a clear exit strategy with the is managing the implementation of 12 potential for future mainstreaming; EU INTERREG IVA funded large-scale • be capable of delivering focused, cross-border health and social care achievable, specified outcomes projects. The title of this overarching within a given timescale, which can programme is Putting Patients, be clearly evaluated; Clients and Families First, and it has a • ensure consumer involvement and strong focus on improving access to person-centredness. services, promoting health and well- being, reducing health inequalities, At present, the benefits of this approach and promoting social inclusion can be seen clearly in CAWT’s Acute across five strategic themes: acute Hospital Services project, a €9 million hospital services; primary, community initiative which has three streams of
88 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Weber Shandwick 210x148.pdf 1 19/01/2011 12:06
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For further information contact Sonya Cassidy Tel: 048/028 9034 7300 Mob: 00 44 (0) 77 7088 6949 Email: [email protected] work: Ear, Nose and Throat (ENT) recruited to the staff of Altnagelvin services; Vascular surgery; and Urology. Area Hospital, adding to the six consultants based there. The The Vascular project is located in consultant team was detailed to work the Erne Hospital in Enniskillen and on a rotational basis, with inpatient performs vascular surgery for patients surgical procedures at Altnagelvin, throughout the CAWT region, including and outpatient and day-case services procedures for dialysis patients who delivered at Letterkenny Hospital. previously had to wait long periods for such interventions in Dublin. There is a The pilot project was evaluated as multidisciplinary team between the Erne having had a beneficial impact7. As a Hospital (Enniskillen) and Sligo General direct result of the additional resources Hospital, as some screening is provided provided, almost 1,000 extra outpatient to patients from the Erne in Sligo. Both appointments were delivered for patients clinicians and patients travel between on the Letterkenny waiting list at the locations to deliver and access the Altnagelvin and Tyrone County Hospitals. related services. The project significantly reduced waiting lists: the total reduction was 2,881 The Urology project has involved the cases, reducing the numbers waiting appointment of a consultant urologist more than six months from 74.7% to in Letterkenny General Hospital, which 8.5% in Letterkenny and from 39.6% to along with the existing consultants none in Altnagelvin. creates a team of five, treating patients on both sides of the border, in the CAWT are currently managing a project HSE West, Western Health and Social providing ENT services between Care Trust (NI), and HSE Dublin North Monaghan and Craigavon hospitals, East regions. principally serving the Cavan/Monaghan region in the Republic and the South Ear Nose and Throat services Tyrone/Armagh region in NI. The service provides outpatient consultations A cross-border pilot Ear, Nose and and day-case surgery for adults in Throat (ENT) service, supported by Monaghan Hospital, with paediatric funding from the INTERREG III-A cases referred to Daisy Hill Hospital in Programme, was delivered between Newry and inpatient cases treated in April 2006 and March 2007, aimed Craigavon. Two ENT consultants were at reducing waiting times and lists recruited under this programme: one is at Altnagelvin Area and Letterkenny based full-time in Craigavon, and sees General Hospitals. The pilot project was outpatients and performs some surgery managed with direct input from clinicians in Craigavon, Newry, and Monaghan; and managers from Altnagelvin and the other consultant is part-time and Letterkenny hospitals, and from the then is based in Monaghan, where he does Sperrin Lakeland HSS Trust (now part of outpatients and day-case surgery. the Western HSC Trust). The initiative is funded through the An extra ENT consultant was INTERREG IV-A funding mechanism,
90 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 and is supported by ‘in kind’ provision of However the project is well-established resources such as, for example, nursing and has successfully treated over 4,800 time in Monaghan. The consultant patients in a little over two years. Given surgeons have trained the clinical team the demonstrated success of this in Monaghan to facilitate high-quality cross-border clinical network approach, care for day-case ENT patients. CAWT funding and support have been secured have funded the necessary equipment from the HSE and the Southern HSC and pay for the consultants. Trust to maintain the ENT cross-border service between Monaghan and This project also works to identify Craigavon. The project will therefore theatre capacity in the relevant hospitals, continue beyond the external EU funding so that patients can be slotted in to and be mainstreamed as part of the utilise the available resources, and the health services in both jurisdictions. waiting lists reduced accordingly. The project is not without its limitations and The significant waiting lists in areas issues. Among these are: such as Louth for ENT outpatient • clinical guidelines recommend consultations (in excess of 2,000) have a six-hour post-op observation led to the expansion of the Monaghan/ period, necessitating much of Craigavon project to treat patients from the Monaghan day-case surgery Louth. It is intended that patients on the to be completed by 12 noon as Louth waiting list can be seen in Louth the patients ordinarily require County Hospital outpatient clinics and to be discharged by 6 pm from may avail of treatment in Monaghan on a Monaghan, reducing the number of day-case basis. operations that can be performed on a given day; There is an intention to develop a • Monaghan can only take adult permanent cross-border ENT clinical patients, meaning that paediatric network in the north-west, providing patients must be referred to Newry; services in Letterkenny and the Erne • Monaghan is not a full-service acute Hospital in Enniskillen on a day-case hospital: protocols are in place for basis (the Erne has no ENT surgery emergency transfer to Craigavon service at present), and Sligo and should the need arise. To date, this Altnagelvin on an inpatient basis. This has never been needed; will build on both the success of the pilot • procurement can be problematic project in the north-west and the current with NHS supply chain restrictions; Monaghan/Craigavon project. • there is a perception in relation to patients accessing the service Ultimately, it is intended that there will be provided under the CAWT a border region ENT service operating programme that it has a somewhat on a cross-border clinical network basis. different status than ‘ordinary’ There are 17 ENT consultants practicing hospital attendees; in the border corridor and all have • difficulties in attracting staff to expressed interest in developing such hospitals outside the main urban an approach. centres in both NI and RoI.
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 91 Replicating the ENT approach potential barriers exist (for example, dual registration and indemnity of It is clear that the ENT projects led clinicians), there are precedents by CAWT have had, and continue to for working around and overcoming have, a very positive impact on patients them; and their families in the border region, • the existence of champions by making available and accessible (clinicians and managers) with the treatments which were previously not commitment, mandate and authority available locally, or where there were to develop further cross-border long waiting lists. The challenge for the ENT services. two health systems is whether and how the ENT approach can be replicated Not all services will lend themselves in other clinical areas where the same to being delivered on a cross-border needs exist. This question has been basis, and there is no ’one size fits all’ examined in the new report, Unlocking solution to the question of whether a the Potential of Cross-Border Hospital given clinical service is suited to such Planning on the Island of Ireland. In the an approach – every service is different report, we examine a series of clinical in terms of a range of factors, including services – including ENT – in which clinical complexity, interdependence more cohesive cross-border approaches between related specialties, the need for have been developed, and we present multidisciplinary and cross-professional a modelling tool which aims to take skills, and sustainability in terms of account of the benefits realised in clinical safety and efficiency. On that those service areas and to provide the basis, our recent report includes a opportunity for similar approaches to be comprehensive framework to consider taken elsewhere. the key factors requiring assessment, and an online modelling tool designed Looking specifically at ENT, we found to take account of the quantitative that a number of important factors elements, to provide planners and policy enabled services to be developed makers with an opportunity to test the on a cross-border basis and could model and see what a more integrated be harnessed to facilitate such cross-border approach might mean for developments in other clinical areas, their service. such as: • the identified potential for better The report examined ENT as one of utilisation of capacity in both non- five exemplar services in developing acute hospital settings and theatre the framework for the planning and space to slot in day-cases and modelling of cross-border acute hospital inpatient treatment, so as to tackle services. The other services examined in waiting lists and treat patients in a detail were orthopaedic surgery, cystic timely manner; fibrosis, acute mental health services, • the recognition that there are no and paediatric cardiac surgery. A insurmountable obstacles to prevent framework was developed that brings the development of further cross- the user through a series of key decision border ENT services – while some points, and includes an Excel-based
92 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 The new acute hospital for the south-west of Northern Ireland, outside Enniskillen, due to open in June 2012. modelling tool for quantitative analysis. be supported by paediatric ICU Each exemplar service was examined by services (among others) on-site; means of the framework methodology. • supporting services – such as specialised physiotherapy and Following on from an initial assessment dieticians for cystic fibrosis patients ; of any proposed cross-border acute • catchment population and current service, and having considered key patient numbers (elective and decisions in relation to the anticipated emergency); benefits, potential barriers, and presence • incidence of need within the of ‘champions’ (key people who will population (e.g. 1% typically require drive an initiative), some of the detailed ENT services); decision factors that would need to be • waiting lists – the orthopaedic considered include the following: surgery waiting lists in the NW region exceeded 1,600 at the end of 2010. Quantitative Factors • resources – the number of Qualitative Factors consultants currently providing the • appropriateness for local service, and the number of locations provision – for example, paediatric in which they operate, e.g. the surgery is unsuitable for local 17 consultants across three sites provision as it must be performed performing orthopaedic surgery in in tertiary centres with a high the North-West; throughput of cases and significant • critical mass – the number of specialised support services; consultants required to run a service • ability to access similar services, effectively and safely (in the case e.g. the length of waiting lists and of ENT, best practice showed that expected waiting time; this equated to 1 ENT consultant • transport infrastructure and the surgeon per 70,000 population, and available connections between 3 consultant surgeons per locations where services are ENT centre); provided and where the catchment • infrastructure – e.g. the requirement population resides – a consideration for paediatric cardiac surgery to for mental health services, for
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 93 example, is that those with mental jurisdictions agree to invest in a single health problems may have less new hospital to serve patients in a broad capability to travel (may not have geographical area straddling the border, access to a car, for instance); with satellite facilities providing less • willingness to travel – in ENT we complex services, diagnostic facilities found that patients were willing and the like, rather than having two or to travel for procedures, including more medium- to large-sized hospitals across the border, rather than providing similar services on each side endure waiting lists, indicating that of the border. the service should be provided within the region; Our study for the Centre for Cross • patient experience and satisfaction; Border Studies showed that there • outcomes – evidence is strong for is a commonly held belief among an improvement in outcomes for stakeholders at every level that in cystic fibrosis patients treated in the absence of a policy imperative specialist centres, for example; supporting and prioritising cross-border • service quality and the need to care initiatives, it is and will continue to maintain quality and develop clinical be extremely difficult to obtain funding teams in all locations proposed. approval for the development of hospital or other healthcare services on a cross- Political commitment or border basis. This was exemplified by obstruction? the reluctance of the two Departments of Health to publish a feasibility study, It is clear that the model for cross-border which they had jointly commissioned in ENT as established by CAWT is working 2007, to develop a strategic framework well to develop an effective service, for taking forward on a North-South reducing waiting lists and enabling basis future collaborative work in patients to access a service both locally planning and delivering some health and in a timely manner. Similarly, as and social care services. Although the examined in our report, it would appear study was concluded in February 2009, that other services could benefit from it was not published until December such an approach. 2011, even though its recommendations were fairly non-contentious, dealing for We referred earlier to the studies into the most part with closer collaborative prospects for more integrated cross- working in future between the two border care which had been conducted Departments and the relevant health in recent years, and the consolidation agencies in some limited and of hospital services taking place defined areas. separately on both sides of the border. However, this debate and analysis has Many senior officials within the lacked any real sense that growing Northern Ireland health and social care funding and resourcing challenges system indicated to us a belief that could be better met by having a more the report’s suppression illustrated integrated approach, and looking to a that major collaborative efforts in future planning scenario in which both health service planning would be
94 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 unlikely to take place between the deliver healthcare in a joined-up way two jurisdictions, other than specific to serve the needs of the population, initiatives which are already under and can act as a lever to drive a more way. This was bolstered by a decision strategic policy of collaboration in in March 2011 by the then Northern the future. Health Minister, Michael McGimpsey (a member of the Ulster Unionist Party), The current political environment in to postpone development of the both jurisdictions is characterised by planned radiotherapy service centre increasing cutbacks and pressure in Altnagelvin, designed to provide for reforms in the face of opposition. services to patients from Donegal as Deeply unpopular decisions are being well as those in the west of NI. This taken, such as the closure of the A&E was in many ways the most significant Department in Roscommon County cross-border development in acute Hospital, despite pre-election promises services, and its delay was a worrying by government representatives to signal for some that the NI authorities, at maintain services at the hospital least, were not committed to developing (seemingly despite the evidence which cross-border services on a larger scale. tends to suggest that small A&E units Its rapid reversal in May 2011 by the cannot be operated safely on a 24/7 new NI Health Minister, Edwin Poots basis). The prospect for cross-border (a DUP member), has gone some way services to deliver ’good news’ stories towards allaying such fears. However, without significant additional investment the saga is a reminder of how such could be exploited to sell the concept to projects are vulnerable to political whims those in authority. and tactics. Opportunities in Enniskillen? Overcoming high-level opposition or simply lack of interest is a difficult The ongoing development of the new prospect. If key authority figures do South West Acute Hospital in Enniskillen not see a value in developing a co- presents a significant opportunity for ordinated approach at a strategic level, fresh thinking in respect of service it undermines all attempts to establish provision on a cross-border basis. cross-border initiatives further down Replacing the existing Erne Hospital, the chain. However, as the various the new hospital will provide up to 312 successes at a micro level have inpatient and day-case beds (compared demonstrated, a lack of political support with the present bed complement of 232 does not automatically spell failure for inpatient beds plus 16 day-case beds at such projects. Indeed, the successful the Erne). development and implementation of projects at local level, and the gradual The Western Health and Social Care roll-out of such initiatives across more Trust, which will operate the new sites and specialties, can inform later hospital, places great emphasis on political and strategy-making decisions. the fact that the model of care will They serve as an advertisement for the promote the delivery of safe, accessible, potential of cross-border services to sustainable, equitable, affordable, high
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 95 quality services, working in a network 250,000 persons in the adjoining five with other hospitals. At the core of counties in the Republic (south Donegal, the Trust’s new model is a focus on north and east Leitrim, north and mid- providing a better patient experience Cavan, north and west Monaghan, and and improved patient outcomes, the north Sligo) might be able to benefit capacity for which is to be delivered from the services planned for the new through better clinical facilities within a hospital in Enniskillen. new, high-quality building offering 100% single-room accommodation (the first Particular opportunities may arise in NI). in areas such as day-case surgical procedures in orthopaedics, where The opening of the new South West there are lengthy waiting lists, serving Acute Hospital in mid-2012, and to patients not just in Fermanagh and a lesser extent the probable coming Tyrone but also in the surrounding cross- onstream of a new Enhanced Local border areas. Hospital in Omagh two or three years later, will present clear opportunities for The new South West Acute Hospital can the development and strengthening of therefore have a valid and significant acute hospital services for the benefit of role to play as part of a managed patients on both sides of border. Given clinical network which also involves that current economic circumstances in the acute hospitals in Altnagelvin, both jurisdictions dictate that it is unlikely Letterkenny and Sligo, and can help that any major new acute hospital to increase the percentage of surgical construction projects will be approved procedures carried out on a day-case in the foreseeable future, it is timely basis (currently significantly less in to consider whether developments of Ireland than in England and Wales) and a the type seen in Enniskillen will offer corresponding reduction in the need for the prospect of improving access to costly acute surgical in-patient beds. services for those living in adjoining counties in the Republic of Ireland. Conclusion
In this context, it is noteworthy that As we have found, there is an absence the new South West Acute Hospital of any agreed strategic framework will be within reasonable proximity of a covering the health and social care number of major population centres in systems in the Republic of Ireland and the Republic (by ’reasonable proximity’, Northern Ireland which might facilitate we mean a typical car journey of under cross-border co-operation, a situation 90 minutes). Included within this general exacerbated by the apparent lack of potential catchment area are the towns political will to commit to cross-border of Monaghan, Clones, Bundoran, co-operation on a mutually agreed Killybegs, Manorhamilton, Leitrim agenda of work. Town, Carrick-on-Shannon, Belturbet, and Cootehill. It is not unreasonable Despite these restrictions and limitations to expect that a possible catchment at strategic and policy levels, significant population of between 200,000 and work has been done to enhance
96 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 cross-border collaboration in health Republic will shortly commence on a service delivery in recent years, much permanent basis. of it facilitated through CAWT and local health agencies on both sides of Against this backdrop, our preliminary the border. Clear benefits have been conclusion is that there is likely to be achieved, particularly in providing access reasonably significant scope for further to services for communities within the development of acute hospital and other border region, much of it on a South- healthcare services on a cross-border to-North basis. In most instances where basis. Given recent progress and the such initiatives have been pursued, cohesion achieved across the various funding has been time-limited and agencies in Northern Ireland and services have not been mainstreamed, Republic of Ireland, we would expect although it would appear that the such development work to be taken provision of radiotherapy services at forward by CAWT, an approach which Altnagelvin Hospital for patients within we would strongly endorse. Donegal and adjoining areas of the
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 97 There is also significant potential in the the Future Hospital System: Report development of cross-border services of the Consultative Council on the based in the soon to be completed General Hospital Services. Dublin, new hospital in Enniskillen in terms of The Stationery Office. June 1968. serving the population on both sides of the border. We recommend the 2. John Compton et al. Transforming commissioning of further research into Your Care: A Review of Health and the potential for the new South West Social Care in Northern Ireland. Acute Hospital to provide services Belfast, Department of Health, to a wider cross-border catchment Social Services and Public Safety, population. December 2011.
Shane McQuillan is partner in 3. Jim Jamison and Michelle Butler, charge of consulting services at Removing the Barriers: an Initial Horwath Bastow Charleton. He Report on the Potential for Cross- has 24 years of health consulting Border Co-operation in Hospital experience, working with the Services in Ireland. Centre for Cross Department of Health and Children, Border Studies, 2007 the Health Service Executive – and its predecessors, the regional health 4. Organisation for Economic boards – in the Republic of Ireland, Cooperation and Development and the Department of Health, (OECD), Public Management Review Social Services and Public Safety for Ireland, 2008 and the Health and Social Care Trusts in Northern Ireland. 5. Ronan Foley, Martin Charleton and Patricia Clarke, ‘Surveying the Vanya Sargent is a consultant Sickbeds: Initial Steps Towards at Horwath Bastow Charleton, Modelling All-Island Hospital with 9 years experience in public Accessibility’, Journal of Cross sector consulting, and a particular Border Studies in Ireland No. 3, specialisation in health and social Spring 2008 (CCBS) care. She has worked for the Health Service Executive (RoI); 6. Shane McQuillan and Vanya Sargent the Department of Health, Social (Horwath Bastow Charleton), Services and Public Safety (NI); Unlocking the Potential of Cross- National Drugs Strategy Team Border Hospital Planning on the (RoI); the Pharmaceutical Society Island of Ireland: A Prototype of Ireland; the Office of the Minister Modelling Framework. Centre for for Integration (RoI), and the BIG Cross Border Studies, 2011. Lottery (NI). 7. Eugene Fee, Evaluation of the CAWT ENDNOTES ENT Pilot Project, November 2007, available on the CAWT website 1. Patrick Fitzgerald et al. Outline of http://www.cawt/com
98 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 CROSS-BORDER UNDERGRADUATE MOBILITY: AN OBSTACLE RACE THAT THE STUDENTS ARE LOSING?
Andy Pollak
The Irish and Northern Irish higher education systems are very different and very complicated: some might say unnecessarily complicated for two small systems on an English-speaking island springing only 90 years ago from the same British roots. A high value is traditionally placed Andy Pollak on education in general and higher education in particular in both jurisdictions, although in Northern Ireland this is probably more true of the Catholic than the Protestant community, with its traditional reliance on trades in now outdated heavy industries. In this context this article looks at the history of and barriers to cross-border student – and in particular undergraduate – mobility on the island.
A high proportion of young people The Northern Irish higher on the island of Ireland have higher education system education qualifications. A recent EU survey showed that 49% of 30-34 In 2009-10 there were nearly 38,500 year olds in the Republic of Ireland full-time and part-time undergraduates had a higher education qualification, attending Northern Ireland’s four higher the highest in Europe and already well education institutions: University of exceeding the target of 40% for the Ulster and Queens University Belfast, EU as a whole by 2020.1 In Northern with its two associated colleges of Ireland, although the numbers going to education, Stranmillis and St Mary’s university from high-achieving grammar University Colleges. Another 12,000 schools are the highest in the UK, there were doing higher education courses is a ‘long tail of underachievement’2 in – including degrees, certificates and the province’s less advantaged schools. diplomas – at NI’s five regional education
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 99 colleges, the merged former further and to raise undergraduate fees (currently higher education colleges. £3,290 per annum for full-time UK and EU undergraduates) in the academic The situation of university students in year 2012-2013 to £6,000-9,000 p.a. Northern Ireland is unique among the (most English and Welsh universities regions of the United Kingdom in at least have opted for the upper limit of three distinctive ways: £9,000, much to the UK Government’s discomfiture), there was considerable • It has the highest participation pressure on the Northern Ireland rate in the UK regions for students Executive to follow suit. An update from lower socio-economic groups to the Stuart Report4 on student fees (in 2008-09 nearly 41.7% of NI’s in Northern Ireland in January 2011 full-time degree entrants were recommended an increase in the from socio-economic groups 4-7, undergraduate fee cap from the present compared to 32.4% in England and rate to between £5,000 and £5,750. 28.2% in Scotland) • A very high proportion of NI- However in September 2011 the new domiciled students (31%) study in Minister for Employment and Learning, England, Scotland and Wales. More Dr Stephen Farry, announced that fees Protestant than Catholic students go for Northern Ireland undergraduates to universities in Britain, and many of would be ‘capped’ at £3,465 per year, these remain to live and work there. with students from England, Scotland • A very low proportion of students at and Wales having to pay fees of up NI universities (2%) are from the rest to £9,000. Undergraduates from the of the UK. Republic of Ireland, on the other hand – as EU citizens – will pay only the The Northern Ireland university system same as their NI counterparts. Dr Farry faces a number of challenges in the said this anomaly was the ‘inevitable coming years. Among these are consequence of a decision to have demographic changes, with the number different fee levels for different parts of of 18 year olds forecast to fall by around the UK.’ He said that charging students 15% over the next 10 years, with a from other parts of the UK at the local consequent impact on undergraduate rate would see Northern Ireland’s numbers and finance.3 This, in itself, universities flooded with applicants could provide opportunities for all- from Britain who would ‘crowd out’ Ireland cooperation in the future, as the local students. Republic of Ireland returns to a situation comparable to the 1980s, with high The UK Government’s decision to undergraduate demand and not enough change the balance of financing the higher education places at a time when British higher education system from there is spare capacity in the Northern largely public funding to mainly private system (see reference to the Williams funding through increasing student Report on page 104). fees is a radical one, and could have far-reaching implications for student Following the UK Government’s decision flows between Britain and both parts of
100 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Students of Trinity College Dublin, Ireland's leading internationally-ranked university, in the Front Square of the university. Ireland (see page 114: Impact of Rising or less are eligible for separate ‘higher UK fees). It will also be interesting to see education bursaries’ of £2,000 p.a. to if the new high fees in British universities study in higher education institutions in lessen the flow of Northern students out the Republic of Ireland (with a similar of Northern Ireland. sliding scale for household incomes of between £11,805 and £23,605). Thus The Northern Ireland student fees, both the threshold and the amount grants and loans system is complex. for NI students studying in RoI are NI undergraduates currently have to significantly lower than for NI students pay a maximum of £3,290 in annual studying at UK higher education tuition fees and are entitled to a non institutions. Northern Ireland students means-tested loan to cover this which in a focus group at TCD commented they will pay back when they start to this researcher on the difficulties earning £15,000 per annum. For lower facing NI students wanting to study in income households there is an annual the South if they do not have parental maintenance grant. Students with financial support: this anomaly only household incomes of under £18,360 exacerbates those difficulties. p.a. receive a full, non-repayable government grant of £3,255 p.a. Partial On the other hand, Northern students at grants are paid to students whose Southern higher education institutions household income is between £18,360 have their €2,000 registration fee paid and £38,360 p.a.5 for them by the NI Department for Employment and Learning. The Stuart The Stuart Report pointed to an unfair Report recommended that ‘policies anomaly in that NI students from regarding maintenance grant and fee households with an income of £11,805 payment for NI students studying in the
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 101 Republic of Ireland should be reviewed, so-called ‘free fees’ for all Irish and EU as they are currently out of step with undergraduates in Irish higher education those which apply to NI students institutions, with the Irish exchequer studying at HEIs in the UK’.6 paying all such fees. Successive governments since then have deemed The Irish higher education system it politically impossible to re-introduce tuition fees, despite the demands There were nearly 77,000 full-time of university presidents and the undergraduates in the Republic of international consensus that university Ireland’s seven universities and four students should contribute to the cost smaller higher education institutions in of their own higher education, given that 2009-2010, plus another nearly 70,000 it will significantly increase their earning – including those taking sub-degree capacity once they take up employment. certificates and diplomas – at its 14 institutes of technology. From a low base There is an annual registration fee and a late start, the rate of expansion in of €2,000 in the current academic higher education places in Ireland has year, which is due to be increased consistently been among the highest of to €2,250 in 2012-2013. The Hunt all OECD countries in recent decades.7 Report recommended ‘a new form of In 1960 5% of 18 years olds went on to direct student contribution based on higher education; in 2010 the proportion an upfront fee with a deferred payment was 65%. facility,’ which would be effectively the UK model. The Fine Gael-Labour The great majority of entrants to higher coalition government has set its face education (third level education, as it is against this, largely because of promises called in Ireland) are traditional school- made during the February 2011 election. leavers. Irish higher education students have the narrowest age range across Around one-third of undergraduates all OECD countries.8 At the same time, in the Republic of Ireland are currently only 3% of undergraduate degree eligible for maintenance grants, with a students were part-time in 2007-08, maximum annual grant of €3,250 for very low by international standards; in students with a family income of over the two Northern Irish universities the €22,700, and a maximum of €6,355 comparable figure is currently over 20%. for students with a family income This inflexibility in higher education and under that level. These maintenance Ireland’s poor performance in lifelong grants are ‘portable’ for undergraduates learning were among the strongest studying in Northern Ireland. The current concerns voiced in the 2011 National maintenance grants system has been Strategy for Higher Education to 2030 widely criticised, both for its inequity in (the Hunt Report). not taking into account capital assets or other wealth but only income (which has The Irish student fees system is prevented it being targeted at unusual by international standards. those students most in need), and Since 1997 there has been a system of for the inefficiency of the grant
102 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 distribution system through County Strategy for Northern Ireland, both Councils and county Vocational published in January 2011, barely Education Committees. referred to the higher education system of the other Irish jurisdiction]. In Northern In sharp contrast to Northern Ireland, Ireland the 1965 Lockwood Report12 it is estimated that demand for higher was the echo of the UK Robbins Report education places in Ireland will rise of 1963, whose recommendations led from 42,500 new entrants in 2009 to to the establishment of a number of new 68,000 in 20279. This follows from an universities. unprecedented increase in the number of births in Ireland in recent years, which The Lockwood Report took the will lead to an expected rise of 12% in statistical evidence of Robbins as primary school enrolments and 7% in also applying to Northern Ireland and secondary school enrolments during the argued for considerable expansion of decade 2009-201910, with consequent participation, to be effected through impacts on higher education enrolments a second university to complement (which will also be swollen by larger Queen’s University Belfast. Three numbers of mature students). This characteristics of Lockwood stand demographic growth will put huge out. Firstly, there was the surprising pressure on a government which is recommendation to locate the second faced with the need to impose very large university in the unionist town of public expenditure cuts over the next Coleraine rather than Northern Ireland’s three-five years. largely nationalist second city, Derry, despite the fact that Derry already had a Levels of undergraduate mobility third level institution – Magee College – historically linked with Trinity Observers have noted that until College Dublin. the 1990s the movement of higher education students between the Secondly there was a total absence two jurisdictions on this island was of any analysis or even reference to considerably lower than one might the issue of Protestant/Catholic higher expect on a small English-speaking education participation in the province. island with similar university cultures and Thirdly, there was no reference to the systems.11 cross-border movement of students or indeed, to any other interaction In the 1960s there were two major on a North-South basis. In this, the investigations into higher education Lockwood Report had much in common provision in Northern Ireland and the with the Irish Government’s Commission Republic of Ireland, neither of which on Higher Education Report of 196713, even mentioned the other jurisdiction which while recommending new [Nearly 50 years on this has not changed planning machinery and the setting up much: the Hunt Report in the Republic of the Regional Technical Colleges, was and the Consultation Document on the silent on any cross-border dimension to Development of a Higher Education higher education provision.
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 103 In the early and mid-1980s, a series conference were the forthcoming new of joint National Economic and Social arrangements for the governance of Council-Northern Ireland Economic Northern Ireland under the Anglo-Irish Council reports explored different Agreement, which was launched later aspects of possible cross-border in the same month. In the stormy collaboration. As part of this process, aftermath of that major policy change Professor Gareth Williams, a noted any proposals for North-South higher British analyst of higher education education collaboration disappeared. policy, was invited to review the prospects for North-South collaboration Increase in undergraduate flows in higher education14. After reviewing to North the relevant statistical evidence on the demand for higher education in In the early 1990s a combination of both jurisdictions, Williams suggested new developments sparked a new flow that as demand for higher education of Southern students to Britain and provision was set to fall in Northern Northern Ireland. At a time of increasing Ireland (based on demographic demand and restrictions on the evidence) and demographic pressures provision of undergraduate places in the were set to increase in the Republic, it South, there was a significant excess would make economic sense for the of demand over supply. Furthermore, Irish Government to pay for its surplus a European ruling that all EU nationals students to fill the spare capacity in were to be treated on the same basis as Northern institutions rather than funding ‘home’ students in terms of fees led to a additional places in the Republic. new market-led cross-border movement of Irish students from the South (mainly Williams suggested, in particular, undergraduates) to Northern Ireland and that there was considerable scope Britain. This resulted in a situation where for cross-border collaboration in the 17% of full-time undergraduate entrants Derry-Donegal border area, and for the to University of Ulster in the mid-nineties extension of the British Open University, came from the South (the figure in already operating in Northern Ireland, Queen’s University Belfast was 7.2%). to the South. He also proposed a North-South higher education liaison The Northern Ireland authorities committee which would advise the two control the total number of full-time governments on ‘those aspects of their undergraduate places through the higher education policies which have, or so-called ‘MaSN cap’. This means that might have, cross-border implications’. each institution is only funded for a The Williams Report was discussed set number of full-time undergraduate at a high profile conference in Dublin places. Hence when the figures for in November 1985 but the institutions each institution appeared they fed the were notably cautious in endorsing its perception that the flow of Southern recommendations without clear political students to the North was displacing cover from the two governments. local students who were therefore Hanging over the report and the ‘forced’ to go to Britain to study. A
104 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7
number of unionist politicians took up that by 2008/09 they were only 4.2% of this cry and it became something of full-time undergraduates (see Table 1). a political football as the institutions were forced to defend their admissions At the same time, there has been a processes as being fair and without steady increase from a low base of prejudice to any sector, and to part-time Southern undergraduates emphasise that Southern students were at Northern universities, particularly achieving entry on merit. at University of Ulster. This can be explained largely by the broad range It needs to be stressed that the MaSN of courses (both full-time and part- cap – which is still in existence – only time, many of them delivered largely applies to full-time undergraduates and online) offered by University of Ulster, that the institutions are free to recruit which is known for being particularly as many part-time undergraduates (and entrepreneurial in putting on specialised full and part-time postgraduates) as undergraduate courses where there they wish. is a market for them. For example the significant increase in part-time Current flows: South to North undergraduates in 2009/10 can be explained largely by a once-off University With the abolition of undergraduate fees of Ulster certificate course in business in the Republic in 1997, the numbers methods for staff in credit unions. of full-time undergraduate entrants going from the Republic to Northern There has also been an increase in Ireland higher education institutions fell the number of Southern postgraduate sharply so that by 1998/99 they were students at Northern universities, at less than half (555) the highest point although many of these, particularly (1,205) they had reached three years at University of Ulster, are part-time or earlier. UK Higher Education Statistics doing courses online. The proportion Agency (HESA) figures show that fall of Southern postgraduates as a continuing into the new century so that percentage of the NI postgraduate RoI undergraduate entrant numbers population as a whole has risen slowly reached a low point of 310 full-time but steadily in recent years: from 9.8% students in 2008/09. They rose slightly in 2000/01, to 13.8% in 2005/06, to in 2009/2010 but the overall trend over 16.65% in 2009/10. the past 15 years is one of slow decline, offset to a certain extent by a rise in Current flows: North to South part-time undergraduate entrants. As can be seen from Table 2 there The total number of Republic of Ireland was also a slow decline from an already full-time undergraduates at Northern much lower base in the number of Ireland higher education institutions saw Northern Ireland-domiciled full-time a similar sharp decline from 1996/97, undergraduates at Republic of Ireland when they constituted over 10% of the universities from 2004/05 (the earliest full-time undergraduate population, so year the HEA keeps computerised
106 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Table 1 Number of Republic of Ireland-domiciled undergraduates at Northern Ireland higher education institutions
Year Full-time Part-time Total Total RoI undergraduates undergrads as at NI institutions % of total 1994/95 2465 150 2615 26,790 9.8% 1995/96 2690 195 2885 29,240 9.9% 1996/97 2670 435 3110 29,750 10.45% 1997/98 2770 370 3140 32,395 9.7% 1998/99 2460 515 2970 33,525 8.9% 1999/00 1945 545 2485 33,260 7.5% 2000/01 1675 560 2230 34,220 6.5% 2001/02 1545 505 2050 35,810 5.7% 2002/03 1550 495 2045 37,230 5.5% 2003/04 1595 530 2125 39,020 5.4% 2004/05 1650 635 2285 40,960 5.6% 2005/06 1685 535 2220 40,765 5.4% 2006/07 1405 425 1825 38,405 4.75% 2007/08 1190 490 1680 37,265 4.5% 2008/09 1050 510 1560 36,925 4.2% 2009/10 960 730 1690 38,430 4.4% Source: Higher Education Statistics Agency (HESA) records of undergraduate numbers) undergraduates before that date), to 2008/09. The only university HEA figures forall Northern Irish which recorded a significant rise in NI students – undergraduate and undergraduates during this period was postgraduate – at Republic of Ireland University College Dublin. Trinity College universities were calculated (See Table Dublin, which has traditionally attracted 3) :it is estimated that over 90% of the largest number of Northern students, Northern Ireland students counted in and particularly those from a Protestant this period were undergraduates. These background, saw its NI numbers fall figures confirm the previous picture of by nearly 23% between 2004/05 and a steady decline, with a fall of nearly 2009/10. 27% in the decade between 1998 and 2008. To check these trends before 2004/05 (in the absence of HEA figures for
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 107 Table 2 Attendance of Northern Ireland-domiciled full-time undergraduates at HEA funded universities 2005-2010 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 Dublin City 31 30 19 12 8 1 University National 73 51 33 27 15 33 University of Ireland, Galway National 8 14 9 16 14 12 University of Ireland, Maynooth Trinity College 432 389 396 364 337 334 Dublin University 10 7 7 4 5 8 College Cork University 210 223 219 256 270 283 College Dublin University of 5 8 12 9 9 4 Limerick Total Northern 769 722 695 688 658 675 Ireland undergraduates Total full-time 60775 60172 61241 63079 65880 66536 undergraduates (at the seven RoI universities only) NI 1.27% 1.20% 1.13% 1.09% 1.00% 1.01% undergraduates as % of total undergraduates
Source: Higher Education Authority (HEA)
Obstacles to undergraduate mobility with Northern undergraduates at Trinity College Dublin and Southern For this section, the researcher has undergraduates at University of Ulster, relied on the views of four focus groups and his own experience as a researcher conducted among sixth-formers in of North-South higher education four schools (two in County Armagh, exchanges and cooperation. A number one in County Louth and one in of main obstacles to (and factors limiting) Dublin); interviews with their careers cross-border undergraduate mobility in teachers; two focus groups conducted each direction can be identified:
108 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 From North to South undergraduates at Trinity College Dublin, and a group of students a) Lack of information about and careers teachers from two universities in the other high achieving schools (one mainly jurisdiction. This was highlighted Protestant and one Catholic) in by all the Northern groups consulted the Northern border region. Unlike for this research: a focus group of British universities keen to attract
Table 3 Attendance of all Northern Ireland-domiciled full-time students (undergraduate and postgraduate) at HEA funded institutions in Ireland
1998/ 1999/ 2000/ 2001/ 2002/ 2003/ 2004/ 2005/ 2006/ 2007/ 2008/ 2009/ 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 University 210 219 201 231 254 260 248* 251 250 282 288 316 College Dublin University 24 23 22 22 19 19 13 9 8 8 7 13 College Cork NUI 60 51 74 77 87 83 93 81 50 35 27 46 Galway Trinity 609 624 590 556 508 501 460 423 427 392 361 366 College Dublin NUI 27 13 13 9 7 8 13* 18 13 20 17 16 Maynooth Dublin City 23 29 25 23 39 64 36 39 25 16 11 4 University University 13 10 6 8 11 8 8 11 15 16 16 12 of Limerick Other HEIs 35 48 36 44 35 39 38* 34 23 30 6 35 (mainly National College of Art and Design) Total 1001 1017 968 970 960 982 909* 866 811 799 733 808 Northern Ireland students
*There appears to have been a glitch in the HEA statistics for 2005/06 – e.g. in one set of HEA statistics seen by this researcher 32 NCAD students were counted; in another set, no students were counted. This table uses the higher of the two recorded statistics.
Source: Higher Education Authority
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 109 applicants from the region with the highlighted by careers teachers UK’s highest performing A-Level and current undergraduates alike. students, who flood the province’s With the high inflation rate of the schools with prospectuses, conduct ‘Celtic Tiger’ years, Dublin became individual school visits, hold as expensive as – or in student special ‘training days’ (Oxford and accommodation, more expensive Cambridge combine to do this on than – London, for which Northern an annual basis) and have a strong Ireland students get a ‘weighted’ presence at the annual UCAS increase in their maintenance loans Convention in Belfast’s Kings Hall, to cover the extra cost of living in the Southern universities have no the UK capital. Northern British such presence. Visits from school university cities such as Glasgow, liaison officers from Southern Newcastle, Manchester and universities are a rare event, and few Liverpool – which are popular with are represented at the Kings Hall NI students – remain considerably event. This factor is dealt with at cheaper than Dublin. In addition, greater length on page 112. these cities – unlike Dublin – have ‘student quarters’ where b) Lack of information about the accommodation is geared Institutes of Technology. This to university students’ pockets. is almost total among Northern This high cost of living appears to Ireland school students and their have more than cancelled out the teachers. The Northern Ireland attraction of the ‘free fees’ regime in school students consulted by this the Republic of Ireland. researcher assumed – if they had had heard about them at all – that d) The change in the ‘equivalences’ the Institutes of Technology in the between A Level and Leaving Republic were the equivalent of Certificate grades, brought about the Regional Education Colleges by Southern universities deciding (formerly Further and Higher to increase the requirement for Education Colleges) in the North, high demand courses like medicine which do far less degree work than and law from three A Levels at the the IoTs (although more now than highest A (later A*) grade to four A in the past). The result is that the levels at the highest grade. This is three border region Institutes of seen by Northern school students Technology (Dundalk, Letterkenny studying for A levels as extremely and Sligo) have respectively 50, 28 onerous, and taking four A levels and fewer than 25 Northern Ireland- to get into a Republic of Ireland domiciled undergraduates enrolled university, when comparable UK – despite their geographical location universities are seeking only three A and ease of access for Northern levels, is sometimes discouraged by students living close to the border. careers and other teachers. This is dealt with in further detail on c) The high cost of living (in Dublin in page 113. particular). This was a major reason
110 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 e) Unfamiliarity with the Central in the mid-1990s was driven by a Admissions Office (CAO) shortage of undergraduate places application process in the in the South and an EU ruling Republic of Ireland. Whereas reducing fees for Irish students in students in all schools – and the North. With the ending of fees particularly the high-achieving and the expansion of undergraduate voluntary grammar schools – are provision in the Republic, this intensively prepared for the UK’s incentive was greatly reduced. With UCAS process, there is little or no the introduction of high tuition fees in guidance by teachers in how to Northern Ireland and Britain in 2012, complete the Irish CAO application the likelihood is that the traffic will be form – school students are usually in the other direction. left on their own to tackle this task. Northern applicants also b) Unfamiliarity with the Universities find it unnerving that there is no and Colleges Admissions Service CAO phone ‘helpline’; they are (UCAS) application process in required to have their schools the UK. In particular, Southern certify photocopies of missing exam students find the ‘personal results, often during the school statement’, containing personal holidays; and they must depend and extra-curricular activities, on an often unreliable cross-border which is so central to the UCAS postal service in the fraught few process, unfamiliar and daunting, days every August when results are especially since the guidance being communicated and offers of counsellors in Irish schools are university places are being made. often equally unfamiliar with it. The concentration by guidance From South to North counsellors on helping their students to successfully navigate the CAO a) The introduction of ‘free fees’ in system in the South is as total as the the Republic in 1997. This removed concentration of careers teachers one of the main incentives for in the North on helping theirs prospective undergraduates to look through the UCAS system. There North for their university education. is relatively little time or capacity Students are shrewd and intelligent by either group to think about the young people: the sample surveys university application process in the of both schools and undergraduates neighbouring jurisdiction. for this research indicated strongly that they will go to university where c) Continuing concerns about they can firstly find the course that the effects of Northern Ireland suits them, and secondly where emerging from conflict and the the cost of higher education is still sectarian nature of society in most advantageous. Thus the the North. This is reflected in the move by significant numbers to comments and experience of the go to Northern Ireland universities Southern students interviewed at
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 111 University of Ulster (including one e) No financial assistance available ugly story about a Donegal woman in UK. Apart from having the right student being assaulted and having to defer tuition fees until they are her jaw broken in a pub for speaking earning £15,000 p.a., students from Irish). All these students emphasised Republic of Ireland have no eligibility that they had gained greatly from for any grants, loans or bursaries and largely enjoyed their time in provided by the NI Department Coleraine. But as one student put it: for Employment and Learning ‘The university authorities and/or the and implemented through the two students union should help us adapt universities. to coming to live in a society still divided along sectarian lines which is Southern universities unfamiliar to us.’ information gap
d) Lack of information about As indicated above, lack of information universities in the other about universities in the Republic of jurisdiction. This issue was voiced Ireland is a bigger issue for Northern less by school students in Dublin students than the other way around. and the Southern border region This issue is therefore explored here in than by their Northern Ireland more detail from a Northern standpoint. counterparts. High-achieving Southern school students tend to Few if any Republic of Ireland universities see undergraduate places in British are currently pro-active in seeking universities like Oxford, Cambridge, Northern Ireland undergraduates. The London and Edinburgh as a goal belief among Northern careers teachers rather than places in the two consulted is that this is because there Northern Ireland universities, and are now more than enough highly such universities (along with all the qualified Southern school-leavers and Irish universities, North and South, they do not need to attract Northerners. and some universities in Europe) are Southern university admissions officers, represented at the annual Higher particularly at UCD and TCD, deny Options exhibition and conference this, pointing to the continuing flow of in Dublin (over 180 institutions Northern applicants to a limited number exhibited at the 2011 event). In of high-demand courses; the financial addition, the two Southern schools cutbacks which limit resources for consulted as part of this research school outreach and recruitment work – one in the border region, the generally, and the poor returns in terms other in Dublin – said they had both of additional applicants from Northern received visits in the past year from Ireland as a result of these exercises. a Queen’s University Belfast schools liaison officer (although not from a However few Northern schools currently University of Ulster counterpart), receive visits from Southern university who had made a distinct impression schools liaison officers. TCD, which in both schools. used to have a dedicated NI schools
112 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 liaison person, now goes only once per about in the following way. In 2003 an year to the North: to Methodist College Oxford University-led Expert Group in Belfast, where other Northern schools reported to UCAS on these equivalences are also invited to attend. and concluded that whereas previously UCAS had deemed results in each The UCD Admissions Office admits Leaving Certificate subject to be half the that school visits in the North have value of an equivalent A-Level subject, been ‘limited, not prolonged or this should now be adjusted to two- systematic.’ The National University of thirds of the value. Ireland Maynooth Admissions Officer, a Monaghan man, has a personal On foot of this finding – effectively commitment to this cross-border downgrading the value of A-Levels recruitment work – in which NUIM have compared to the Leaving Certificate targetted Catholic schools in the North’s – TCD decided to start requiring four border region in recent years – but they A-Levels (with A, later A*, grades) for have seen poor returns from it. Northern Ireland applicants to high demand, high points courses like NUI Maynooth is one of the few medicine, dentistry and law. They felt Southern higher education institutions that to do otherwise would give Northern (the others last year were Dublin students with top grade A-Level results City University, and Dundalk and an unfair advantage over their Southern Sligo Institutes of Technology) which counterparts with top grade Leaving continues to take a stand at the annual Certificate results. This practice was UCAS Convention in Belfast (cost eventually adopted by all the Southern £2,400), but again sees few returns universities’ Admissions Offices. from this investment. In contrast, 108 The TCD Admissions Office had universities and colleges from England, noticed that 22% of A-Level applicants Scotland and Wales exhibited in Belfast were already presenting with four in March 2011. A-Levels, presumably because this improved their chances of entering high Leaving Certificate-A Levels prestige British universities like Oxford equivalences and Cambridge (there is a long tradition, particularly in UK public schools, of Since this appeared to be one thinking of Trinity as a third choice after disincentive which could be addressed the ‘Oxbridge’ universities). – and one which was raised by several Northern school students and careers The TCD admissions officer pointed teachers – the researcher explored this out that only 33% of Northern students issue in more detail. accept their TCD offers – evidence that they are using their application A senior admissions officer at Trinity to TCD as insurance in case they are College Dublin explained that the not accepted by a UK university – and change in Advanced Level/Leaving when the UK university offers arrive in Certificate equivalences in 2005 came August, many accept a UK place and
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 113 discard their Trinity offer. This is common applicants!’ What they did was to practice in both jurisdictions: a senior resort to the unsatisfactory medium of Queen’s University Belfast admissions random selection. officer said that of the 368 Southern applicants holding either unconditional The TCD admission officer said or conditional ‘firm offers’ for QUB Trinity continues to use the principle in June 2010, only 79 took up those of ‘proportionality’ based on exam places the following autumn. results from each jurisdiction – which Northern Ireland students may perceive The TCD admissions officer stressed to be ‘quotas’. Thus if the proportion that the British UCAS and Irish CAO of applicants from the UK (including admission schemes looked for different Northern Ireland) with eligible A-Level things, and it might be difficult for results for a particular high demand Northern students to navigate both of course is 25%, they will be allocated them. The CAO points system is based 25% of the places on that course. solely on performance in one exam, the Leaving Certificate. In this way However the UCD admissions officer it is utterly transparent – particularly emphasised that Southern admissions important in a small society – but also officers were very concerned that there excludes evidence of independent should be no inequity in the allocation of learning and personal development. The places to Northern students. To this end, UCAS system, on the other hand, with there is currently a working group drawn its stress on a ‘personal statement’ from from the Irish universities’ representative the applicant, also takes into account body, the Irish Universities Association, wider student achievements, including and the Northern Ireland examinations extra-curricular activities. body, the NI Council for the Curriculum, Examinations and Assessment (CCEA) Another issue is that at the two big meeting to examine this issue. Dublin universities which receive the overwhelming majority of Northern Impact of rising UK fees applications, a large proportion of these are for a small number of high The large rise in UK tuition fees due to demand courses: medicine, dentistry, be introduced by the great majority of law, history and English in Trinity British universities in autumn 2012 is College Dublin; medicine, veterinary, likely to have a very significant impact law, history, politics and English in UCD. on undergraduate flows between Britain A senior UCD admissions officer said and both parts of Ireland. A 2011 that before the Southern universities paper prepared by Dublin business had changed to requiring four A-Levels consultant Michael D’Arcy for Institute for such high demand courses, there of Technology Sligo warned that policy were very large numbers of Northern makers in the Republic of Ireland ‘have applicants with three top-grade A-Levels yet to substantively engage with the applying for them. ‘We could have filled potential impacts of the decreases medicine and law with Northern Ireland and increases in cross-border flows of
114 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 students in and out of this jurisdiction while the number of UK applicants to that will result’ from this rise in fees. He Irish universities rose by 9.5%. said that if they wait until the 2012-13 academic year they will have little time This would have obvious implications to respond to a development which for an Irish university system which will have a major impact on the nearly is already over-extended in its efforts 9,000 Republic of Ireland domiciled to cater for the rising demand for undergraduates who go to university in undergraduate places at a time of Britain and Northern Ireland every year.15 severe government funding cuts. That won’t prevent UK students trying The situation in autumn 2012 will be as to come here: in particular, Trinity follows. The great majority of universities College Dublin – as the top ranked Irish in England and Wales will charge annual university internationally – expects more tuition fees of up to £9,000. Scottish applications from Britain in 2012. universities will not charge fees for Scottish-domiciled students (or students Andy Pollak is Director of the from Republic of Ireland and other EU Centre for Cross Border Studies and countries), but will be able to charge up Secretary of the all-island university to £9,000 for students from elsewhere in network Universities Ireland. He is a the UK. In Northern Ireland the fees will former education correspondent of rise only slightly, although students from the Irish Times. This article is based elsewhere in the UK will be required to on research that was carried out in pay up to £9,000. spring-summer 2011 for the IBEC- CBI Joint Business Council and the In its otherwise harsh December 2011 EURES Cross Border Partnership. budget, the Irish Government decided to limit the increase in the university registration fee to €250 (bringing it to ENDNOTES €2,250 per annum from 2012-1013). If the Republic of Ireland continues to 1. http://www.educationmatters.ie/ have such a low fees system alongside 2011/04/19/ireland-best-in-eu-for- a much higher fees system in Britain, number-of-graduates/ the consequences will be significant. Not only will a growing proportion of 2. Phrase used by Sir Bob Salisbury, the nearly 9,000 undergraduates who chair of the Northern Ireland currently go to universities in Britain and Literacy and Numeracy Task Force, Northern Ireland probably decide to in an address to the SCoTENS stay at home, but also a rising number conference in September 2011 of British undergraduates will choose to study in the low-fees regime in the 3. http://www.nisra.gov.uk/ Republic of Ireland. Already in 2011 demography/default.asp20.htm the number of Irish undergraduate applications to UK universities fell by nearly 20% (from 2,352 to 1,899)16,
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 115 4. Independent Review of Variable Fees Dublin and Belfast: NESC/NIEC, and Student Finance Arrangements 1985 (Stuart Report), March 2010, and Update, January 2011 15. Michael D’Arcy, A Higher Education Scoping Study: Studying in a 5. http://www.qub.ac.uk/home/ neighbouring jurisdiction: the TuitionFeesandStudentSupport potential impact of higher UK tuition Arrangements200809/ fees on the island of Ireland. Institute UndergraduateTuitionFees200809/ of Technology Sligo. StudentSupport/ 16. Irish Times, 9 December 2011 6. Independent Review of Variable Fees and Student Finance Arrangements (Stuart Report), Update, p.33
7. National Strategy for Higher Education to 2030 (Hunt Report), Department of Education and Skills, Dublin, January 2011
8. Ibid, p.46
9. Ibid, p 44
10. Monitoring Ireland’s Skills Supply: Trends in Education and Training Options, Forfas, 2009.
11. For example, Robert D. Osborne, Higher Education in Ireland, North and South. London:Jessica Kingsley, 1996
12. Lockwood Report, Higher Education in Northern Ireland. Belfast: HMSO, 1965
13. Commission on Higher Education, Report, Vols I-III. Dublin: Stationery Office, 1967
14. Higher Education in Ireland: Cooperation and Complementarity.
116 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 INDEX OF JOURNAL ARTICLES
The following articles appeared in the Journal of Cross Border Studies in Ireland, Numbers 1-7 (2006-2012), in alphabetical order according to author.
Austin, Roger. Dissolving Boundaries in North-South education. No.5 (2010)
Barry, John. Towards a Green New Deal on the island of Ireland: from economic crisis to a new political economy of sustainability. No.5 (2010)
Beck, Joachim. Lessons from an Institute for Cross-Border Cooperation on the Franco-German Border. No.3 (2008)
Bradley, John. Learning from the Irish Border: Reflections on Poland and the Ukraine. No.2 (2007)
Bradley, John, and Best, Michael. By-passed places? The post-Belfast Agreement Border Region economy. No.6 (2011)
Bradley, John and Best, Michael. Rethinking Economic Renewal: Towards a Cross- Border Economic Development Zone in Ireland. No.7 (2012)
Clarke, Patricia and Jamison, Jim. Cross-Border Health Cooperation: From Optimism to Realism. No.1 (2006)
Clarke, Patricia and Kinsella, Ray. Cross-border banking in an era of financial crisis: EU rules need not apply. No.4 (2009)
Coakley, John. Voting for unity or union? The complexities of public opinion on the border issue. No.4 (2009)
Coolahan, John. SCoTENS: How Teacher Educators took the lead in North-South cooperation. No.3 (2008)
Cowen, Brian. Making the here and now a better place: interview on North-South cooperation with the Taoiseach, Brian Cowen. No.5 (2010)
Creamer, Caroline, Blair, Neale, O’Keefe, Brendan, Van Egeraat, Chris and Driscoll, John. Tough Love: Local cross-border cooperation faces the challenge of sustainability. No.3 (2008)
De Burca, Aoibhin, and Hayward, Katy. The Agreement Generation: Young people’s views on the cross-border relationship. No.7 (2012)
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 117 Farrell, Michael. Keeping up with the neighbours: Human Rights protection, North and South, since the Belfast Agreement. No.6 (2011)
Foley, Ronan, Charlton, Martin and Clarke, Patricia. Surveying the Sickbeds: initial steps towards modelling all-island hospital accessibility. No.3 (2008)
Gaffney, Maureen, and Ringland, Trevor. Towards a new tourism brand for the Island of Ireland. No.3 (2008)
Gibson, Chris. A Word from the Chairman. Nos. 1-6 (2006-2011)
Harvey, Brian. Community development along the border: an instrument for the development of the cross-border region? No.5 (2010)
Johnston, Helen. A Word from the Chair. No.7 (2012)
Kennedy, Michael and Magennis, Eoin. North-South agenda setting in the 1960s and 1990s: Plus ca change? No.2 (2007)
Kenny, Enda. As an Island, let us show the world what we can really do: interview on North-South Cooperation with the Taoiseach, Enda Kenny. No.7 (2012)
Kitchin, Rob, Bartley, Brendan, Gleeson, Justin, Cowman, Mick, Fotheringham, Stewart and Lloyd, Chris. Joined-up Thinking across the Irish Border: Making the data more compatible. No.2 (2007)
Klatt, Martin. Sonderjylland-Schleswig: from conflict to cooperation in the Danish- German border region. No.6 (2011)
Magennis, Eoin, Clarke, Patricia, and Shiels, Joseph. Is Cross-Border Cooperation Working? Some lessons from Border Ireland. No.1 (2006)
Magennis, Eoin, MacFeeley, Steve, and Gough, Aidan. A sense of proportion in cross-border shopping: what the most recent statistics show. No. 5 (2010)
Magennis, Eoin. A Paradox in Irish Attitudes: Garret FitzGerald and the North-South relationship. No.7 (2012)
McCall, Cathal. ‘Hello Stranger’: the revival of the relationship between Ireland, Northern Ireland and Scotland. No.2 (2007)
McCloughan, Pat. University of Ulster and Letterkenny IT: a unique opportunity for higher education collaboration in the north-west. No.5 (2010)
118 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 McGuinness, Martin. ‘We need to be big and generous towards each other’: interview with the NI Deputy First Minister, Martin McGuinness, on North-South cooperation. No.6 (2011)
McKay, Susan. Dealing with cross-border sex offenders: learning from the North’s multi-agency approach. No.4 (2009)
McQuillan, Shane, and Sargent, Vanya. Cross-border Hospital Planning in Ireland: learning from local success stories. No.7 (2012)
Minihan, Mary. Co-operation Ireland: remaining relevant in a difficult recessionary age. No.6 (2011)
Morgenroth, Edgar. The Dublin-Belfast rail line: the need for a better service to lower North-South economic barriers. No.6 (2011)
Mullan, Caitriona. Partnership in Cross-Border Development: symbolic structure and working process. No.2 (2007)
O’Broin, Eoin. Nationalism in the service of a better chance for a bigger life: a response to Robin Wilson. No.5 (2010)
O’Dowd, Liam. The Future of Cross-Border Cooperation: Issues of sustainability. No.1 (2006)
Pollak, Andy. Educational Cooperation on the island of Ireland: Are the good years ending? No.1 (2006)
Pollak, Andy. The Trade Unions and North-South Cooperation: time for a rethink? No.3 (2008)
Pollak, Andy, and D’Arcy, Michael. What role for North-South economic cooperation in a time of recession? Interviews with six business leaders and economists. No.4 (2009)
Pollak, Andy. Cross-Border Undergraduate Mobility: an obstacle race that the students are losing? No.7 (2012)
Robinson, Peter. ‘Business to be done and benefits to be gained’: the views of Northern Ireland’s First Minister, Peter Robinson, on North-South Cooperation. No.4 (2009)
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 119 Toibin, Colm. Along the Catalan and Irish borders: politics of memory and progress through good manners. No.5 (2010)
Trench, Brian. North-South research collaboration: a drop in the international ocean. No.7 (2012)
Vigier, Francois, Driscoll, John, and Lee-Chuvala, Christa. Ad Hoc Regionalism: managing growth through spatial planning – Learning from the American experience. No.1 (2006)
Vigier, Francois. Learning to be good neighbours: The role of cross-border spatial planning in Ireland. No.4 (2009)
Wilde, Jane. Food security and health on the island of Ireland: are we sleepwalking into a crisis? No.6 (2011)
Wilson, Robin. Towards cosmopolitanism? Renewing Irishness in the 21st century. No.4 (2009)
Back issues of The Journal of Cross Border Studies in Ireland are available from the Centre for Cross Border Studies, price £12/@14, including postage and packing (contact details on page 197).
120 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Deputy First Minister Martin McGuinness with Andy Pollak, Helen Johnston and Sir George Quigley at the launch of the 2011 Journal of Cross Border Studies in Ireland.
THE CENTRE FOR CROSS BORDER STUDIES
March 2012 The Centre is an independent company limited by guarantee (UK charity no. The Centre for Cross Border XR 31047) and is owned jointly by Studies, founded in September Queen’s University Belfast, Dublin City 1999 and based in Armagh and University and the Workers’ Educational Dublin, researches and develops Association (Northern Ireland). Its cooperation across the Irish principal financial contributors in the past border in education, training, year have been the EU INTERREG IVA health, ICT, the economy, public programme and the Irish Department administration, agriculture, planning, of Education and Skills. The Centre has the environment and other practical also raised a significant proportion of its areas. It also provides management, income through sponsorship and selling training and ICT support services its research and consultancy services to to North-South and cross-border government and other agencies. organisations and networks; develops and manages cross-border Controversy about constitutional information websites, and offers relations between Northern Ireland cross-border impact assessment and the Republic of Ireland now and evaluation tools and support. It obscures less than ever before the also works with similar cross-border broad consensus that exists in both education and training centres and jurisdictions about the value of cross- institutes elsewhere in Europe. border cooperation on practical issues.
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 121 This holds that a low level of contact and findings can be discussed and communication across the Irish border disseminated, and at which policy damages the well-being of both parts formation in the area of cross-border of the island, and there is a clear need cooperation can be developed; to identify and overcome the present • Present the findings of such barriers to cooperation and mutual research and development projects understanding. to the European Commission, the two governments, the Northern PURPOSE Ireland Executive, employer, trade union and social partnership bodies, The pragmatic view, that cooperation and the public; should take place where it brings real • Provide management support for benefits to both parts of the island, is North-South and cross-border weakened by an additional factor: there organisations and programmes has been too little research to date on which have a strong education, how this practical cooperation is to be research, and development achieved, and how the outcomes of dimension; such research should be developed. • Provide training programmes for For the past 13 years the Centre for public officials, NGOs and others Cross Border Studies – itself a unique in cross-border cooperation and expression of cross-border cooperation impact assessment in Ireland and – has provided an objective, university- Europe; based setting for policy research into • Provide sources of comprehensive and development of such cooperation. and accurate information about In recent years, in partnership with the cross-border cross-border Euro-Institut in Germany and other cooperation in Ireland and Europe, European partners, the Centre has also particularly information of use to taken on an increasingly EU-facing role, citizens wishing to cross borders to particularly in the area of developing live, work or study. tools for cross-border cooperation in Ireland and Europe. WEBSITES
The Centre is a policy research CCBS HOUSE WEBSITE and development institute, whose purpose is to: • Identify gaps in cross-border information, research and mutual learning in Ireland and Europe; • Commission and publish research on issues related to opportunities for and obstacles to cross border cooperation in all fields of society and the economy in Ireland and Europe; • Host events at which research
122 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 www.crossborder.ie Year Visitors Visits Page views Hits (monthly average)
2003 1619 2161 4802 14373
2004 1453 2084 9178 18981
2005 2566 3603 8127 24747
2006 3481 4915 10149 30534
2007 3969 5432 12041 32207
2008 4340 6060 15930 37045
2009 3621 5156 19338 43007
2010 4054 6490 29449 63317
2011 4617 8702 49423 87735
www.crossborder.ie
The number of people accessing the Centre’s home website (www. crossborder.ie) once again increased across all measurements in 2011 – unique visitors, number of visits, page views and hits – with a particularly dramatic rise in the number of page views, which increased by 20,000 per month and have now risen by more than ten times since 2003. www.borderireland.info
Border Ireland was the first ever online searchable database to provide access to the full
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 123 Year Visitors Visits Page views Hits (monthly average)
2009 3801 7043 24840 82984
2010 2994 6547 25178 55486
2011 3416 7569 29591 54971
range of information on North- coordinators in all higher education South and cross-border issues institutions, and key community and in Ireland, covering education, voluntary, and business leaders. health, agriculture, transport, the environment, tourism, culture, EU Peace funding for the Border mobility issues, business and Ireland website finished at the end of community development. 2008. Despite this, Border Ireland has documented (online) the details of 3,782 The figures for the Border Ireland North-South and cross-border activities, website (www.borderireland.info) 1,790 organisations, 2,048 publications, demonstrate a consistent user base 2,276 newspaper articles and 2,345 (even though much of its achival material individual contacts (people). Border has not been updated since 2009). Ireland is available at The Media Centre – which is updated www.borderireland.info where people on a weekly basis – continues to be the can search through the information by main page visited (see table above). year, sector and location, and view an organisation’s history of involvement in With funding from the EU Peace II cross-border cooperation. programme, the Centre developed Border Ireland to centralise the very Following a facelift in 2008, the large amount of uncoordinated and Border Ireland Media Centre was fragmented information about North- introduced to highlight media reports South cooperation and the Irish border on North-South and cross-border region. This involved the creation of an issues. The Media Centre is now the information capture strategy and strong most popular and visited page on the working relationships with a network of site with almost 8,200 views during over 200 information providers from all December 2011. This RSS1 news government departments, North and feed is syndicated on the Centre's South; the managing authorities for all and International Centre for Local and EU programmes; relevant charitable Regional Development’s other websites: foundations on the island; research www.crossborder.ie,
1 RSS (most commonly expanded as Really Simple Syndication) is a family of web feed formats used to publish frequently updated works such as blog entries, news headlines, audio, and video in a standardised format.
124 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 www.borderpeople.info, http:// Visitors Visits Pages scotens.org and www.iclrd.org. January 6,944 7,622 17,216
The website also features an interactive February 6,358 7,013 15,636 discussion forum to disseminate Border Ireland Briefings and to provide March 6,552 7,142 15,258 responses to ‘A Note from the Next Door Neighbours’ (see page 128). The April 5,431 5,932 12,512 Border Ireland Briefings now on the site are: a guide to cross-border cooperation May 6,681 7,311 15,264 in the health services; cooperation June 6,560 7,177 14,617 between public libraries; a guide to the geographical location of cross-border July 6,155 6,709 13,726 cooperation activities; an overview of North-South and cross-border August 6,725 7,357 15,292 cooperation in the Common Chapter of the two jurisdictions’ development plans; September 7,773 8,558 17,787 ‘Who’s Who’ in North-South and cross- October 8,343 9,227 19,674 border cooperation; and overviews of North-South and cross-border November 8,521 9,304 18,784 cooperation in agriculture, economic development, tourism and transport. December 6,511 7,022 14,266
BORDER PEOPLE Monthly 6,880 7,531 15,836 Average
N.B. In 2010 the DID section of the NI Department of Finance and Personnel installed a more sophisticated method of measuring web statistics. These statistics can therefore not be compared with previous years’ statistics.
on cross-border taxation, social www.borderpeople.info security, job seeking, qualifications, health, education, housing, banking The Border People online and telecommunications. information portal, providing citizens’ information for people It was developed in response to a crossing the border to live, work, commission from the North South study or retire, is now five years old. Ministerial Council Joint Secretariat in The website continues to be the early 2007 with technical assistance only cross-border source of citizens from DID (Delivery and Innovation information that covers both Division), the web and design team jurisdictions. It provides information of the Northern Ireland Department
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 125 of Finance and Personnel, and was with key events in the region’s tourism, initially funded by the EU Peace Two business and cross-border shopping programme. calendars, and leaflets and pens were distributed at targeted events. The prototype website was officially launched (initially as www. There is a continuing demand for crossbordermobility.info) in October information and advice on cross-border 2007 at a meeting of the North/South mobility issues. The number of ‘page Ministerial Council in Ballymascanlon, views’ on the Border People website Co. Louth by the then First Minister during 2011 was on average 15,836 per of Northern Ireland, Dr Ian Paisley MP month read by 6,880 visitors. MLA, the Deputy First Minister, Mr Martin McGuinness MP MLA and the The Border People team also receive an Irish Minister for Foreign Affairs, Mr average of about 60 queries per month Dermot Ahern TD. Work continued on via the comment facility on the website, the site, and it was launched to the email or telephone. The enquiries public as www.borderpeople.info are usually of a complex nature, e.g. in Dublin in April 2008 (by television involving cross border claims for social and radio presenter Clare Byrne) welfare or taxation. and in Derry/Londonderry in May 2008 (by Northern Ireland Deputy Due to the comprehensive information First Minister Martin McGuinness MP made available on the website and MLA). It received widespread publicity the assistance provided to people throughout Northern Ireland and the with individual queries, Border People Southern border region, including a full has become recognised as the expert page article in the Belfast Telegraph. source of practical cross-border information. Typical testimonials from This second phase of the Border People users are: website (2009-2012) is currently being maintained and developed by the Centre The help and support from the Border in partnership with the North South People project has been tremendous Ministerial Council Joint Secretariat and I will definitely recommend the and funded by the EU’s INTERREG IVA service to anyone in need of help programme as part of the INICCO group and support. of projects. It’s a service like this that people need in An all-Ireland and international marketing this current climate, and especially cross company, Weber Shandwick, was border workers who feel that they are retained to publicise the initiative. During falling between two stools. 2011 there were poster campaigns on billboards, adshels and buses in Newry, During 2011 two User Groups meetings Armagh, Enniskillen, Coleraine, Derry/ were organised in collaboration with the Londonderry, Dundalk, Letterkenny, IBEC-CBI Joint Business Council: in Bundoran and Monaghan to coincide Monaghan in June and in Letterkenny
126 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Pictured on the Derry/Londonderry Peace Bridge after a Border People User Group meeting: From left to right Michael Farrell (FPM Chartered Accountants), Joe Shiels (CCBS), Brian Morgan (Morgan McManus Solicitors), Shona McCarthy (Derry City of Culture), Kirsty McManus (IBEC-CBI Joint Business Council). in September. These events were • Debt collection: top 10 tips entitled ‘Developing your Cross-Border • Cross-border business taxes Business’ and were well attended • Accessing business grants in each by representatives from government jurisdiction agencies, cross-border local authority • Public tendering and procurement networks, the Eures Cross Border procedures Partnership, community groups, • Cross-border business succession business development organisations and related tax issues and private businesses. Speakers from • Digital social media for the SME – FPM Accountants, Morgan McManus the basics Solicitors, InterTradeIreland, the Credit Review Office, Tierney Tax Consultancy, Presentations and case studies provided Grow Sales Online and Bid Management at the User Group meetings are available Services presented a wide range of on www.borderpeople.info topics including: Through the year Border People • Cross-border employment law participated in a number of cross border • Challenges facing SMEs and events including: support mechanisms • Sourcing bank finance for a cross- • Eures Cross Border Partnership border business jobs fairs
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 127 • Tradelinks inter-regional Meet the Neighbours, to a growing audience of Buyer and Networking Event subscribers: nearly 7,000 at the last • Cross Border Business Support count. These Notes have provoked Expo, Dundalk Chamber of enthusiastic feedback and debate. Commerce/ InterTradeIreland • Eures Cross Border Partnership The 65 ‘Notes’ so far have covered the advisors training following issues: whether North-South • Tress Conference on Coordination of cooperation actually works to bring Social Security in Europe about reconciliation between people in the two jurisdictions; the inaccurate At a seminar in Dublin in November reporting of North-South cooperation in 2010 the international lawyer and expert the media; the possible re-opening of on EU mobility issues (and the Irish the Ulster Canal; the importance of EU representative on the European Network funding to cross-border cooperation in on Free Movement within the EU), John Ireland; the need for Northern Ireland Handoll, said: to attract back its highly educated and skilled emigrants; how Ireland, North In my practice and research into free and South, could play a distinctive role movement issues, the Border People in combating world hunger; hopes website has become an essential tool. after the March 2007 Northern Ireland More importantly, its clear and user- election; the cross-border role of friendly design allows citizens on both teacher education; Rev Ian Paisley as a sides of the border to access up-to-date champion of North-South cooperation; information on key topics. It has the contribution of Norwegian human evolved over time in response to rights lawyer, Torkel Opsahl, to the citizens’ needs and has become a peace process; the need for civil society first port of call for those seeking to groups in both Irish jurisdictions to talk understand their rights. to one another; a possible high-speed rail bridge between Northern Ireland A NOTE FROM THE NEXT DOOR and Scotland; the row over families NEIGHBOURS in Donegal sending their children to Derry schools; why higher education students don’t cross the border to study any more; more about barriers to cross-border higher education; the resurrection of Clones; whether the Irish border region could become the best border region in Europe; how the Centre for Cross Border Studies is becoming involved in work in Africa; an upbeat message from the chairman Since September 2006 the Centre has of the Centre; reconciliation initiatives been sending an opinionated monthly in Monaghan and Armagh; anti-racism e-column, A Note from the Next Door and anti-sectarianism work in primary
128 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 schools in County Antrim and the region’s economy; good new ideas for Southern border region; cross-border cross-border cooperation; the South cooperators saying ‘Yes’ to the Lisbon learning from the North during a time of Treaty; cross-community gaelic games; recession; the Queen’s visit and impact the value of having both a united Ireland assessment; bringing Irish schools and a United Kingdom at the same time; together through ICT; a response to the statistics which show the commonalities Slugger O’Toole begrudgers; golf shows between North and South; North-South the way to ‘through-otherness’; making cooperation during the recession; why the island’s children our first priority; the concept of an ‘island of Ireland’ fracking in Fermanagh; the lack of economy is still a valid one; the interest in North-South cooperation by ‘patriotism’ of cross-border shopping; Irish researchers; the lack of interest in the work of a Monaghan priest in cross- North-South cooperation by Sinn Fein; border reconciliation; cross-border and dynamic people in the Irish phone, insurance and banking services; border region. the Belfast-Dublin Enterprise train (two ‘Notes’); the cross-border activities of These columns have been reported an East Belfast Protestant community in the Irish Times, Irish News, Derry worker; an appeal for an idealistic Journal, Northern Standard (Monaghan), person to become the Centre’s deputy Scotsman, Glasgow Herald, Sunday director; the Centre’s work in knitting Post (Scotland) and on RTE, BBC the island’s relationships back together; Scotland, Border Television and local the Orange marching season; the need radio stations in Ireland, Northern for less emphasis on Irish unity and Ireland, Scotland and northern England. more on cross-border cooperation; the They also appear on the celebrated Fermanagh man with the cross-border website of British-Irish and Northern Irish knowledge in his head; the role of civil issues Slugger O’Toole servants and EU officials in cross-border (http://sluggerotoole.com) peacebuilding; some unsung heroes of cross-border cooperation in 2009; The columns can also be accessed the Armagh Rhymers group; Irish unity at www.crossborder.ie/home/ndn/ versus North-South cooperation; young index.php. people and politics; cross-border postal and train services; the welfare state, CURRENT RESEARCH, North and South; the role of the North INFORMATION AND TRAINING South Ministerial Council; North-South PROJECTS cooperation in energy; an unpublished cross-border health report; Dundalk as THE INICCO PROJECTS an exemplary green town; the impact of the Irish and UK financial crises on Between 2009 and March 2012 the North-South cooperation (two ‘Notes’); Centre has undertaken five major ICT in Northern Schools; the poor research, training and information state of the Southern health service; projects funded by the EU cross- how to begin to revive the border border programme INTERREG IVA
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 129 and managed by the Special EU and how well the various website Programmes Body. These have been features are working. 92% of users in packaged under the collective title: a 2010 survey said that they ‘agreed’ the Ireland/Northern Ireland Cross- or ‘strongly agreed’ with the statement Border Cooperation Observatory that Border People is ‘an important and (INICCO). At time of writing an valuable resource’ for people living and INICCO Phase 2 funding application working in the Irish border region. is being prepared for submission to the follow-up INTERREG IVA At time of writing Phase 3 of Border programme for 2013-1015. The People is being put together as part five constituent projects in INICCO of the INICCO Phase 2 INTERREG Phase 1 were as follows: funding application. It will include a programme of training and capacity 1. BORDER PEOPLE CROSS- building to prepare the existing citizens BORDER MOBILITY advice bodies, Citizens Advice (NI) and INFORMATION WEBSITE the Citizens Information Board (RoI), to (PHASE TWO) integrate the Border People service into their mainstream provision after 2015; This is the second phase of the Border and research into patterns and issues of People (www.borderpeople.info) mobility across the Border. information website, being developed in a continuing partnership with the The Steering Group for this project is North South Ministerial Council Joint drawn from the North South Ministerial Secretariat. This project is led by the Council Joint Secretariat, the Centre for Centre for Cross Border Studies’ IT Cross Border Studies, the Department manager, Joe Shiels, and information of Finance and Personnel (NI), the officer, Annmarie O’Kane. (For more Department of Social and Family Affairs information see the longer item on (RoI), Citizens Advice (NI), Citizens Border People on pages 125-128). Information Board (RoI), and the Eures Cross-border Partnership. User group Phase Two has allowed for a much more meetings on specific topics of concern systematic dissemination and marketing to cross-border workers and other of information and public feedback on interested people are organised every cross-border mobility issues, assisted six months at a location in the border by an active and enlarged User Group region. drawn from a range of citizens advice, employment advice, local authority, 2. THE CROSS-BORDER SPATIAL business and community organisations. PLANNING AND TRAINING Performance is being reviewed against NETWORK (CroSPlaN) agreed targets for information content, along with regular statistical website This network, organised by the reports to evaluate demand and usage. Centre’s sister organisation, the An annual survey tests whether the International Centre for Local and interests of users are being matched Regional Development (ICLRD),
130 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Pictured after ICLRD Director John Driscoll received a copy of the Memorandum of Understanding between Louth Local Authorities and Newry and Mourne District Council. From left to right: Tim O'Connor, Jim Hetherington, Edel O'Mahony, John Driscoll, Caroline Creamer, Michael Curran, Eimear Donnelly. brings together planners, economic and spatial planning in Connecticut development officers, local authority (USA) and the Elbe basin (Germany), officials, councillors, and community and in Ireland’s cross-border region and business interests on both sides of (Year 2); and shared services in the border to promote more systematic Scotland, Spain, Canada and New learning and exchange in planning. (For York State, and examples drawing more information on CroSPlaN and mainly on the Irish cross-border ICLRD see pages 150-167) region (Year 3). • One executive training programme CroSPlaN’s three year (2009-2012) per year for cross-border region programme consists of the following: local councillors, council officials and business leaders. The first course, • Six applied research projects. in the Louth-Newry and Mourne These have been on the inter- region, ran from November 2009 to jurisdictional planning implications May 2010; the second, in the North of the NI Review of Public West, ran from October 2010 to Administration and on tri-national March 2011; the third, in the central planning in the Basel region of border area, ran from October to Switzerland, Germany and France December 2011. (Year 1); river basin management
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 131 • One technical workshop per year CCBS Deputy Director Ruth Taillon, • One annual conference was published in October 2010 under the title Exploring the Potential for The ICLRD during this time have also Cross-Border Hospital Services in used the CroSPlaN programme to the Irish Border Region: The role of produce – with partners such as the community involvement in planning National Institute for Regional and hospital services. Spatial Analysis (NIRSA) and the All- Island Research Observatory (AIRO) at This report featured feedback from NUI Maynooth – a significant number 11 focus groups in the border region of other innovative outputs, including and a range of patients and medical an all-island Accessibility Mapping professionals. Case studies of service Tool; an all-island Housing Monitoring users and campaigning community Tool; an all-island Deprivation Index; groups in three areas were undertaken: and a scoping study pointing the way cancer care in the North-West; cystic towards an island of Ireland Spatial fibrosis in the two jurisdictions; and Monitoring Framework. the campaign for a hospital in Omagh. Among the recommendations were that The Steering Group for CroSPlaN brings Patient and Public Involvement (PPI) together planners, planning academics, concepts in hospital planning should cross-border cooperation specialists be properly implemented; service and cross-border local authority network users from both jurisdictions should be representatives from the Planning involved in the planning of new Service (NI), the Border Region Authority services at Altnagelvin (Derry/ (RoI), Leitrim County Council, the Londonderry) and Enniskillen hospitals; National Institute of Regional and Spatial and service users should have full Analysis (NIRSA) at NUI Maynooth, information about their entitlement to University of Ulster, the Irish Central services in the other jurisdiction. Border Area Network (ICBAN), the Centre for Cross Border Studies and The second report was Unlocking the the ICLRD. Potential of Cross-border Hospital Planning on the Island of Ireland: 3. EXPLORING THE POTENTIAL A Prototype Modelling Framework, FOR CROSS-BORDER by Shane McQuillan and Vanya Sargent HOSPITAL SERVICES IN THE of the Dublin consultancy firm Horwath BORDER REGION Bastow Charleton. This report was launched in Belfast on 15 December This project has led to the publication 2011 (at a North South Research Forum of two reports on how cross-border meeting) by Tom Daly, Director General hospital services might help to provide of Cooperation and Working Together mutual benefits for the people of the (CAWT) and Dean Sullivan, Director Irish order region. of Planning and Performance at the Northern Ireland Department of Health, The first of these, carried out by Social Services and Public Safety.
132 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Delegates who attended the ICLRD/CroSPlaN Annual Conference on 19-20 January 2012 in the Crowne Plaza Hotel, Dundalk The report concluded that while the South, particularly along the border, there are significant barriers to the being treated for some cancers in development of cross-border acute Northern hospitals. healthcare, these can be ‘worked around’ where it makes sense for Both these reports are available on improved patient services to do so. the Centre’s website The study analysed five sample clinical (www.crossborder.ie). service areas where there is potential for cross-border collaboration: orthopaedic The Steering Group for this project surgery, ENT surgery, paediatric cardiac brought together health and cross- surgery, cystic fibrosis and acute mental border cooperation specialists together health services. It also produced a from the Institute of Public Health in prototype modelling framework for Ireland, the Health Research Board cross-border acute healthcare services, (RoI), the Health Service Executive (RoI) incorporating both qualitative and (observer), Cooperation and Working quantitative factors, to help plan the Together (CAWT), the Irish Patients development of such services. The Association, the Patient Client Council report also noted that the new South (NI), the Pharmaceutical Society of West Acute hospital in Enniskillen Ireland, the Irish Department of Foreign offered a ‘significant opportunity’ for Affairs (observer), the Centre for cross-border service provision. Cross Border Studies and the University of Warwick. The report was published in the same week as the Compton Review into 4. REVIVING THE BORDER health and social care in Northern REGION ECONOMY IN A NEW Ireland, which suggested a number ERA OF PEACE AND DEVOLVED of cross-border initiatives, including GOVERNMENT specialist paediatric services to be provided to Northern patients by The final report of this research Southern hospitals, and patients from project - Cross-Border Economic
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 133 Renewal: Rethinking Regional Policy 1. The researchers first examined the in Ireland - will be launched in spring ‘island’ context of the border region 2012. The aim of its package of four economy, since this determines closely inter-related studies is to find much of what happens in the region. ways of understanding and increasing They looked at its peripherality within the accessibility, size, transparency, the British Isles and on the island competitiveness and profitability of Ireland and its uniqueness as a of Irish border region markets in a peripheral region with the added context where peace and normality burden of a ‘border-related policy have finally arrived in Northern Ireland fault line.’ and the Irish Border Region, but have 2. They then moved on to identifying been followed by a deep economic and describing the structure recession. This project – in which the and characteristics of the border Centre is partnered by InterTradeIreland region economy from an ‘outside’ – was carried out by Dr John Bradley, perspective, using official, published formerly a research professor at the data sources.They examined the Economic and Research Institute in nature of its consumer markets, Dublin and Professor Michael Best its production activities and its of the Universities of Massachusetts tourism product. (Lowell) and Cambridge University, 3. The final and most innovative stage an international authority on industrial was an attempt to communicate development stragegies and regional with and learn from local policy innovation systems. They also makers and actors (including local collaborated – for comparative purposes manufacturers) in the border region – with experts from the Polish (Lower and try to see the border economy Silesia) and German (Saxony and from an ‘inside’ perspective. Brandenburg) border regions. This included a series of detailed investigations of a range of specific The focus of this project was on the enterprises in the region, in specific economy of the peripheral and manufacturing and services. There disadvantaged region straddling the was a concluding examination of the Irish border. In particular, it examined the positive and/or negative roles played productive aspects of that region, i.e. by the border as a policy barrier the characteristics and performance of with the aim of understanding how the set of businesses that operate in the this region might be reincorporated border counties – whether they behaved into the mainstream of island differently to other, non-border counties economic and business life (and that otherwise shared many similar how its political, administrative and characteristics; and to what extent was business leaders might implement the presence of the now peaceful border policies that address its exceptional a help or hindrance to their activities. challenges).
The project was carried out in At an ‘emerging findings’ conference in three stages: Cavan on 17-18 November, a number of
134 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Caroline Creamer (ICLRD), Mairead Hughes (CCBS) and Eimear Donnelly (CCBS) at the Reviving the Border Region Economy conference, Cavan, 17-18 November 2011. prominent economists and industrialists package to the 2013-2015 INTERREG from Ireland, Scotland and Germany IVA programme. addressed these issues (see pages 182-183). The closing address was The Steering Group for this project given by Padraic White, Chair of the brings together economists, industrial Louth Economic Forum and formerly promotion practitioners and cross- Managing Director of IDA Ireland, who border cooperation specialists from proposed the formation of a ‘Strategic InterTradeIreland, the Department of Development Plan for the Border Zone’ Enterprise,Trade and Investment (NI), with support from mayors and council Invest Northern Ireland, Forfás (RoI), the chairs and county managers and district Economic and Social Research Institute council chief executives on both sides of (RoI), the Centre for Cross Border the border. Studies and University of Ulster.
The Centre is hoping to interest a 5. IMPACT ASSESSMENT publisher to bring out the Bradley-Best TOOLKIT FOR CROSS-BORDER report as a book. It is also preparing COOPERATION a proposal for a follow-up research project into the potential of a Strategic As part of the integrative work of a Development Plan for the Border Zone, cross-border observatory, the Centre as outlined by Padraic White, as part has devised and developed an Impact of the INICCO Phase 2 application Assessment Toolkit (IAT), to support
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 135 mutually beneficial cross-border can help to define and clarify the extent cooperation in Ireland. This collaborative to which a programme or project is likely project with the Euro-Institut in Kehl, to contribute to the desired changes. Germany was led by the Centre’s Many problems of Northern Ireland and Deputy Director, Ruth Taillon. The the Irish border region do not respect highly innovative toolkit it has produced jurisdictional boundaries. The toolkit will – the first of its kind in the European help to determine whether a cross- Union - is designed to guide policy- border approach is the appropriate level makers and EU funders (and to be of of intervention and, if so, to identify the particular assistance to the Special ‘added value’ of such cooperation. EU Programmes Body in Ireland/ Northern Ireland) in thinking through Will a cross-border approach be more the impact assessment process, and efficient and/or effective than a single thus assisting them in designing better jurisdiction approach? Are the proposed quality cross-border programmes and activities expected to have a greater projects. Impact assessment has been overall impact – socially, economically used particularly in the health and or environmentally – if undertaken on environmental sectors in Ireland, a cross-border basis than separately North and South, and widely in the within each jurisdiction? Or, by European Union, but not until now in addressing problems of the cross- cross-border cooperation. border territory through a collaborative approach, will additional impacts While the toolkit has been developed result specifically from the cooperation specifically for use in Northern Ireland process? For example, will new and the Irish border counties, it is relationships be built between people intended that the methodology it uses or organisations that would not have can be adapted to other cross-border developed otherwise? Will the cross- regions in Europe. The toolkit breaks border activities lead to new ways of new ground in that it offers an integrated working or more intensive collaboration process that takes into account that would not have been the case if social, economic and environmental they had been carried out separately? impacts (the three EU ‘pillars’ of sustainable development), plus a fourth The toolkit was launched at a ‘cooperation’ pillar that will identify conference in Cavan on 27-28 and capture impacts specific to cross- October (see pages 181-182) by border cooperation. Dr José Antonio Ruiz de Casas of DG Regional Policy (DG REGIO) in Brussels. In the past EU-funded cross-border There has been a very positive reaction programme and project promoters have to the toolkit, and Ruth Taillon has often found it difficult to demonstrate made presentations on it to a wide impact: i.e. the changes that have range of EU, public and community taken place as a result of the activities organisations. Among these have undertaken. The Impact Assessment been the EU’s territorial cooperation Toolkit for Cross-Border Cooperation programmes training agency
136 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Pictured at the launch of the Impact Assessment Toolkit for Cross-Border Cooperation, Cavan, 28 October 2011: the report's authors, from left to right, Dr Joachim Beck, Ruth Taillon, Sebastian Rihm. INTERACT (separate presentations has also been planned using the in Valencia, Brussels and Rome); the toolkit’s methodology. Northern Ireland ESF Programme ‘Innovation and Mainstreaming Working A first pilot training course in IAT took Group’; the NI Regional European Forum place on 17-18 January with six projects (staff of key organisations involved in EU (ConneXions, Cavan County Council, programmes); the Community Relations Proteus, Blackwater Partnership, Council NI Evaluation Advisory Panel Community Workers Coop and Women and the Community Workers Coop. The into Public Life). A second training Toolkit is now available on the SEUPB, course was held in March specifically for INTERACT and CCBS websites. EU programme implementation bodies. The Scottish National Contact Point for Most significantly, the SEUPB INTERREG, Cooperation and Working completely redesigned its INTERREG Together/HSE and Proteus have all IVA application form for the January expressed interest in the training course. 2012 ‘call’ for applications to incorporate the toolkit’s methodology Further training and mentoring, using (using the same questions as those the toolkit, along with complementary outlined in the toolkit). Ruth addressed evaluation and budget toolkits, are SEUPB workshops in Northern Ireland, key elements in the INICCO Phase 2 Ireland and Scotland for applicants funding application being prepared by to this final round of the INTERREG the Centre and ICLRD at time of writing, IVA programme. The new Victims and along with a proposal to INTERACT Survivors Service for Northern Ireland (with the Euro-Institut); and probably
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 137 work with the Transfronter Euro-Institut The partners with the Centre in this Network (TEIN) (see pages 184-185) project are six of the seven colleges on an adaptation of the toolkit for other of primary education on the island: European border regions. Stranmillis University College and St Mary’s University College in Belfast; St This project was implemented by a Patrick’s College Drumcondra, Marino team comprising Centre for Cross Institute of Education, Froebel College Border Studies Deputy Director Ruth of Education and Church of Ireland Taillon; Director of the Euro-Institute in College of Education in Dublin (Mary Kehl, Germany, Dr Joachim Beck, an Immaculate College in Limerick took advisor to the European Commission part in the exchanges up to 2009). 170 on cross-border cooperation and student teachers have taken part in this impact assessment; and, as research exchange project since it was initiated assistant, Sebastian Rihm, formerly a in 2003 (making it the longest-running postgraduate student at the Universities of all the North-South exchanges that of Kehl and Ludwigsburg, who came to CCBS have organised). The first four Armagh for six months in 2010-11 to exchanges were funded by the EU work on the project as an intern, and Peace Programme, while the exchanges now works for the Euro-Institut. since 2009 have been funded by the The project Steering Group is drawn Standing Conference on Teacher from the Special EU Programmes Body, Education North and South (SCoTENS) the Northern Ireland Statistics and (see also pages 145-150). Research Agency (NISRA), Cooperation Ireland, INCORE (International Conflict In October 2008 a study by Dr Maeve Research Institute (University of Ulster), Martin of NUI Maynooth on the impact Pobal, Institute of Public Health in of the exchange on the personal Ireland, Northern Ireland Commission attitudes and professional practice of for Victims and Survivors, International the student teachers who had taken Centre for Local and Regional part in it between 2003 and 2007 was Development (ICLRD) and the Centre for completed. Dr Martin concluded: Cross Border Studies. This project has been a great success in terms of the enduring positive CURRENT EXCHANGE PROJECTS dispositions it has helped to develop among the beneficiaries, the young North-South Student Teacher teachers. These have included: greater Exchange Project (Year Eight) interest in peace and reconciliation issues; greater consciousness of the In March 2012 the North-South Student demands of multicultural classrooms; Teacher Exchange project will enter its greater knowledge of the other eighth year with the latest exchange jurisdiction’s education system and of 13 students to do a key part of curriculum; the invaluable experience their assessed teaching practice in gained from learning from skilled schools in the other Irish jurisdiction. teachers in the other jurisdiction; and
138 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Students and Directors of Teaching Practice at the orientation day for the 8th Student Teacher Exchange project in the Skylon Hotel, Dublin, on 26 January 2012. a greatly increased sense of personal By giving the next generation of worth and confidence gained through teachers the opportunity at first hand to participation in the exchange. experience a very different educational, social and political setting, the scheme She called the project ‘a courageous, was actively promoting the objectives of inclusive and groundbreaking exchange’ peace and reconciliation. and ‘an experience that has been transformational’ for the student teachers involved. CURRENT ADMINISTRATION PROJECTS In an evaluation of SCoTENS between 2003 and 2011 (see also pages 148- The Centre has filled an important niche 150), Dr John Furlong, Professor of by providing administrative support Educational Studies at Oxford University, to North-South and cross-border wrote of the North-South Student initiatives, particularly in the field of Teacher Exchange: education. Many cross-border projects are sustained largely through EU funding There was strong agreement among and the commitment of enthusiastic a number of our respondents that the individuals, and when the money and Student Teacher Exchange scheme enthusiasm runs out their absence was one of SCoTENS’ most significant of a proper administrative structure contributions to the peace process. often dooms them to early closure.
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 139 The Centre offers this cross-border and the Northern Ireland Department for administrative structure, and a detailed Employment and Learning. knowledge of support mechanisms in both Irish jurisdictions, which can ensure Universities Ireland has been able to such projects’ longer-term sustainability. overcome the disadvantage of being a very small networked organisation UNIVERSITIES IRELAND with no full-time staff and a small annual income of around £150,000 by leveraging sizeable amounts of extra money to support its activities. In 2007-2011 the Irish-African Partnership for Research Capacity Building (IAP) raised €1.5 million from Irish Aid with The work of Universities Ireland €110,000 in matching funds from UI. (UI) continued in 2011-2012 with In 2006-2010 the Universities Ireland/ the Centre acting as its secretariat. IBEC-CBI Joint Business Council North/ During the year UI ran a number South postgraduate scholarships raised of key projects: the Universities £366,000 from individual business Ireland/ESB North/South firms in Dublin and Belfast with the Postgraduate Scholarship scheme; same amount of matching funding from the Irish-African Partnership for UI. In 2010-2011 and 2011-2012 the Research Capacity Building (whose North/South scholarships scheme has support from UI ended this year); been co-sponsored by ESB and the Irish Section of Scholars at (contributing €45,000). Risk. New activities in the coming year will include an all-island The current chair of Universities Ireland programme of activities to reflect on is the President of University College the 1912-1923 period in Irish history Cork/National University of Ireland and work on a new partnership with Cork, Professor Michael Murphy. The Scottish universities. members of its governing council are the nine university presidents and vice- Funding continued chancellors; the director of the Open to be provided University in Ireland, plus representatives by an annual of the Irish Department of Education subscription from and Skills and the NI Department for the 10 participating Employment and Learning. universities (the Open University in Ireland NORTH/SOUTH POSTGRADUATE became the 10th SCHOLARSHIPS member university in November 2011), and The aim of this scheme is to encourage annual grants from the outstanding students from the Republic Irish Department of of Ireland and Northern Ireland to cross Education and Skills the border to undertake postgraduate
140 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Pictured at the meeting between Scottish, Irish and Northern Irish university presidents at Robert Gordon University, Aberdeen, on 26 January 2012: (from left to right) Professor Ferdinand von Prondzynski, Vice Chancellor, Robert Gordon University; Dr Hugh Brady, President, University College Dublin; Mr Michael Russell MSP, Cabinet Secretary (Minister) for Education and Lifelong Learning, Scottish Government; Professor Tony Gallagher, Pro Vice Chancellor, Queen's University Belfast.
Energy, Engineering, Arts and other subjects: North/South study and This is a scheme which has been Energy,Postgraduate Scholarships Engineering, Arts and experience life conceived both to support the other subjects: North/South in the other Irish continuing process of North-South Postgraduate Scholarships jurisdiction. In reconciliation and to train highly-skilled Guidance Notes for 2012 Applicants 2011-2012 five postgraduates to contribute to a new Introduction Universities Ireland, which promotes collaboration between universities in Northern Ireland and the Republic of Ireland, and the Electricity Supply Board (ESB), the largest energy company on the island of Ireland, are offering five scholarships to students undertaking a recognised Master’s or the first year of a PhD programme (taught or research) in the other scholarships phase of economic and environmental Irish jurisdiction. Dublin Institute of Technology is also a partner in this scheme, which has been running since 2005.
These scholarships are worth 15,000 (approx. Stg £12,500) each. This year three of the scholarships will be in the areas of energy and engineering, and will be co-sponsored by Universities Ireland and ESB. Two more will be in another area – arts, business, science were awarded, development for the island. and social science – and will be funded by Universities Ireland alone. These scholarships must be taken up for the academic year 2012-2013.
The aim of this scheme is to encourage outstanding students from the Republic of Ireland and Northern Ireland to cross the border to undertake postgraduate study and experience life in the other Irish jurisdiction. Because it is 50% sponsored by ESB, there is a particular three to students emphasis on the areas of energy and engineering, and the scheme aims to help build all-island innovation in STEM subjects (science, technology, engineering and mathematics) which will be crucial in moving the island towards the kind of sustainable knowledge society that is vital both for its future prosperity and environmental sustainability. It is thus a scheme which has been conceived both to support the continuing peace process in Northern Ireland and to train highly skilled postgraduates to contribute to a new phase of economic and doing energy These North/South scholarships are environmental development for the island as a whole. and engineering open to all students current registered subjects (co- at an Irish or a Northern Irish university sponsored by the Electricity Supply or the Open University in Ireland or Board) and two doing law and Dublin Institute of Technology (or who philosophy (sponsored by UI alone). The have graduated within the past five scholarships are worth €15,000 each. years) proposing to take up a place The ESB will again jointly sponsor the on a postgraduate course which would 2012-2013 scholarships. require them to locate to the other
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 141 Irish jurisdiction. They are also open to THE IRISH-AFRICAN PARTNERSHIP Irish or Northern Irish-born students FOR RESEARCH CAPACITY currently registered at (or who have BUILDING (IAP) graduated within the past five years from) a British university (i.e. a university in England, Scotland or Wales) who wish to relocate to the Irish jurisdiction they were not born in to undertake a postgraduate course.
The 2011 winners were: This four year project (2007-2011), • Joyce Acheson, a graduate of Trinity funded by Irish Aid under the auspices College Dublin, doing a Masters in of Universities Ireland, brought together Advanced Mechanical Engineering all nine universities on the island of at Queen’s University Belfast (co- Ireland and four universities in Sub- sponsored by ESB) Saharan Africa in a unique, high-level • Jonathan Mitchell, a graduate of partnership to develop a coordinated Queen’s University Belfast, doing approach to Research Capacity an MA in Contemporary European Building (RCB) in higher education Philosophy at University College institutions. The overall aim of the Dublin (sponsored by UI) Irish-African Partnership (IAP for short) • Marian McGrath, a graduate of was to advance effective strategies for University College Cork, doing a sustainable research capacity building PhD in Sedimentary Processes for poverty reduction in the 13 partner and Offshore Renewable Energy universities in the areas of health and Development at University College education, with gender and ICT as Cork and Queen’s University Belfast cross-cutting themes. Universities (co-sponsored by ESB) Ireland financial support for this • Teresa McGrath, a graduate of network ended in August 2011, University College Dublin, doing a and it is now led by Dublin City PhD in the Long-term Performance University. of Materials and Technologies in Retrofitting Practices at Queen’s The IAP partner universities in the 2007- University Belfast (co-sponsored 2011 period were Dublin City University, by ESB) Trinity College Dublin, Queen’s University • Clayton O’Neill, a graduate of Belfast, University of Limerick/Mary University of Ulster, doing a Masters Immaculate College, University College in Law at Trinity College Dublin Dublin, University of Ulster, National (sponsored by UI) University of Ireland Galway, National University of Ireland Maynooth, This brings to 30 the number of University College Cork, Makerere students who have been awarded these University (Uganda), University of Dar scholarships over the past seven years. es Salaam (Tanzania), Universidade
142 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Eduardo Mondlane (Mozambique) A final event in this phase – a research and University of Malawi. Finance, capacity building summer school – workshop organisation and liaison with was held in Dar es Salaam on 22-24 the funders (Irish Aid/Higher Education September 2011. It was a joint venture Authority) were undertaken on behalf of between IAP, EARIMA (East African the partnership by Universities Ireland Research and Innovation Management through the Centre for Cross Border Association) and the Association of Studies (which was also represented on Commonwealth Universities’ project, the IAP’s Executive Committee along Research and Innovation Management with the 13 partner universities). Improvement for Africa and the Caribbean. Those attending came from IAP was financed by a €1.5 million 13 universities in Tanzania, Uganda, grant from the Programme for Strategic Mozambique, Kenya and Rwanda. Cooperation (PSC) between Irish Aid and Higher Education and Research The three-day event revoved around Institutes (2007-2011), with €110,000 three strands: research management, in matching funding from Universities graduate research and supervision, Ireland. Irish Aid funding for the and agenda-setting for the priorities partnership ended in March 2011. of the new EARIMA network. The The six objectives of the IAP (2007- summer school was deemed a success 2011) were: by participants, notably because not only did it contribute to developing the 1. To assess existing capacity in knowledge and skills of participants, development research within the 13 but it also consolidated an institutional partner universities structure at regional level, EARIMA, 2. To identify opportunities and which is now in a position to carry constraints to development research forward and take ownership of the capacity within the 13 partner research capacity building agenda in institutions East African universities. 3. To enhance partner institution research capacity through SCHOLARS AT RISK: developing and delivering a summer IRISH SECTION school training programme 4. To identify key themes in health and Universities Ireland has been the education research over the next Irish Section of the international 10 years inter-university network, Scholars at 5. To build an Irish-based development Risk (SAR), which is based in New research network through agreed York University, since 2008. In many principles of partnership with countries around the world, scholars African partners. and academics are attacked because 6. To provide a platform to enable and of their words, their ideas and their support the development of specific place in society. Those seeking partnerships arising from network power and control work to limit interactions. access to information and new ideas
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 143 by persecuting scholars, restricting O Halpin of TCD, Professor Diarmaid academic freedom and repressing Ferriter of UCD, Professor Paul Bew of research, publication, teaching and QUB and Professor Gearoid learning. Scholars at Risk (SAR) is O Tuathaigh of NUI Galway. This will an international network of universities see the Universities Ireland initiating and and colleges responding to these supporting a multi-year programme of attacks. SAR provides sanctuary in activities to reflect on the 1912-1923 universities, particularly in Europe and period in Irish history. The intention is North America, to professors, lecturers, that this will be a high-level, scholarly researchers and other intellectuals who and sustained initiative, and thus a suffer threats in their home country. unique contribution to reflection on a decade of history-changing events In September 2009 the official launch of by the island’s intellectual leaders, the SAR Ireland Section took place at Trinity nine universities (and more specifically, College Dublin, followed by a keynote their nine Departments of History). address by Dr Shirin Ebadi, the Iranian Universities Ireland will provide seed- human rights lawyer, university lecturer funding to initiate this programme and author who became the first Muslim (plus some administrative support and woman to win the Nobel Peace Prize funding to maintain it), and this will be in 2003. used to seek extra financial support from interested Departments in the Irish and Four SAR scholars have so far Northern Irish governments. The outline been hosted by Irish universities programme of activities will include using Universities Ireland funding: a lobbying to improve archival access; psychology professor from Iran at research scholarships for University of Limerick; a political scientist young historians; collaborative from Iran at Trinity College Dublin and history teaching initiatives; and joint University College Dublin; a public health conferences and seminars. specialist from Burma at University College Cork; and a human rights lawyer On 26 January 2012 a delegation of from Iran at NUI Galway and Queen’s university heads from Universities Ireland University Belfast. The Universities travelled to Aberdeen to meet Scottish Ireland scheme has inspired four more university principals at Robert Gordon Irish universities to host scholars using University, now headed by Professor other resources, and several speaker Ferdinand von Prondzynski (formerly series have been organised. president of Dublin City University). They also met the Scottish Cabinet Secretary NEW INITIATIVES (Minister) for Education, Michael Russell MSP. They discussed a number of areas In January 2012 the council of where Irish-Northern Irish-Scottish Universities Ireland approved a new inter-university collaboration might project following an application from a be enhanced, including inter-university group of leading historians from the nine ‘research pooling’ (which the Scottish universities, including Professor Eunan universities have developed to a high
144 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Speakers at the 9th annual SCoTENS Conference in Cavan on 29 September 2011: (from left to right) Sir Bob Salisbury, Dr Tom Hesketh, Ms La'Verne Montgomery, Mr Ciaran Cannon TD, Minister of State for Training and Skills, Professor Teresa O'Doherty, Dr Harold Hislop. degree). A return visit to Dublin by Professor Teresa O’Doherty, Dean Mr Russell and the Scottish university of Education at Mary Immaculate heads is planned for early autumn of College, University of Limerick, and 2012. Dr Tom Hesketh, Director of the Regional Training Unit in Belfast. Website: www.universitiesireland.ie Conferences STANDING CONFERENCE ON TEACHER EDUCATION, NORTH SCoTENS’ ninth AND SOUTH (SCOTENS) annual conference, Ninth Annual Conference on ‘Promoting Promoting The Centre also acts as the Literacy and Literacy and Numeracy secretariat for the Standing Numeracy through through Teacher Education Conference on Teacher Education, Teacher Education’,
Keynote Speakers North and South. This was set was held in Professor Terezinha Nunes, Professor of Educational Studies, University of Oxford Dr Harold Hislop, Chief Inspector, Irish Department of Education and Skills up in 2003 by a group of senior September 2011 in Sir Bob Salisbury, Chair, Northern Ireland Literacy and Numeracy Task Force
The Radisson Blu Farnham Estate Hotel, Cavan, teacher education specialists from the Radisson Blu Thursday 29th - Friday 30th September universities, colleges of education Farnham Estate and other education agencies Hotel in Cavan. It was opened by the in both jurisdictions. The 2011- Minister of State for Training and Skills 2012 joint chairs of SCoTENS are in the Irish Department of Education
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 145 and Skills, Ciaran Joint Secretary of Cannon TD. The the North South keynote speakers were Ministerial Council Professor Terenzinha and Margaret Nunes, Professor of Stanley, Southern Educational Studies Acting Joint at Oxford University, Secretary. The who spoke on ‘Why other two reports teachers must know launched were about more than Primary School phonics to teach Teachers’ experiences of teaching English literacy’; and Healthy Eating within the Sir Bob Salisbury curriculum, by Elaine Mooney, Eileen and Dr Harold Hislop, Kelly-Blakeney, Amanda McCloat respectively chair of the Northern Ireland (all of St Angela’s College, Sligo) and Literacy and Numeracy Task Force, and Dorothy Black (University of Ulster); and Chief Inspector at the Department of Disablist Bullying: an investigation Education and Skills, who spoke on the of student teachers’ knowledge implementation of the respective literacy and confidence, by Dr Noel Purdy and numeracy strategies in the two Irish (Stranmillis University College) and jurisdictions. Dr Conor McGuckian (Trinity College Dublin). The conference featured a series of workshops on literacy and numeracy Previous SCoTENS’ annual conferences with a number of themes: classroom were on ‘Reflective Practice – literacy practice; the Leonardo Challenges for Teacher Education’ in Effect inter-disciplinary methodology 2009; ‘School Leadership Policy and for developing young children’s Practice, North and South’ in 2008; literacy skills; research into teachers’ ‘Teaching in the Knowledge Society’ in mathematical knowledge; North-South 2007; ‘Teacher Education and Schools: perspectives on numeracy issues; the Together Towards Improvement’ DEIS Project; Achieving Belfast and in 2006; ‘Teacher Education for Bright Futures Derry. Citizenship in Diverse Societies’ in 2005; ‘The Changing Contexts of Three reports Teacher Education, North and South’ were launched at (with a particular emphasis on Teaching Teacher Education the conference. Councils) in 2004; and ‘Challenges to for Inclusion The SCoTENS Teacher Education and Research, North 2010 conference and South’ in 2003. and annual report Teacher Education SCoTENS has also provided seed
2010 CONFERENCE for Inclusion, was funding for North-South and AND ANNUAL REPORTS
Secretariat provided by The Centre for Cross Border Studies launched by Mary all-island conferences on social, Bunting, Northern scientific and environmental education
146 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 (six); initial teacher education, the experiences of citizenship and diversity education primary teachers (two); educational research; special in teaching healthy educational needs (two); social justice eating guidelines; education in initial teacher education building North- (two); language teacher education; South links in global post-primary religious education; justice education; doctoral research in education (three); primary school autism; dyslexia, literacy and inclusion; physical education; the competences approach to teacher arts-based professional development; and teaching educational research; the digitisation of controversial history (1916 and the Irish historical education documents; Battle of the Somme). sixth year religion; peer mentoring in teacher education; spoken Irish Research in Irish-medium schools; the ‘lift off’ literacy programme for Irish medium SCoTENS has also provided seed schools; good practice in the teaching funding for North-South research of pupils from ethnic minorities; projects on the social/national identity continous professional development of young children in the border region; for teaching practice supervisors; a ICT in teacher education; children framework for further education teaching with profound and multiple learning qualifications; capacity-building in Initial difficulties; student teacher exchanges; Teacher Education; disablist bullying; student perceptions of history, art and design in teacher education; geography and science; school- mentoring physical education teachers; based work in colleges of education; Japanese research lessons in peer-to- the professional development of peer professional learning; teachers teachers working with students with understanding children exposed to special educational needs; examining domestic abuse; adult education assessment procedures for trainee practitioners exploring online and arts- teachers; universities’ role in continuing based reflection; assessment in teacher teacher professional development; education North and South; exploration work-placed learning models in of mathematical identity using narrative post-compulsory teacher education; as a tool; science enhancement and measuring the value of education learning through exchange/collaboration technologies; primary student teachers’ among teachers; North-South mathematical identities; Realistic educational partnerships in Mathematics Education; consulting development contexts; teachers’ pupils on remediation of their specific views on the factors influencing literacy difficulties; student teachers their profesional development; new and the needs of pupils with autism challenges/new opportunities in spectrum disorder; English as an spiritual education; promoting an active additional language in undergraduate ‘restorative school’ learning community teacher education; inclusion and North and South; and writing as a diversity in post-primary education;
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 147 professional development activity in Dr Noel Purdy of Stranmillis University initial teacher education. College, is a particularly popular element. A total of 71 North-South research, conference and exchange projects SCoTENS also sponsors the ground- have received financial support from breaking North-South Student Teacher SCoTENS in the period 2003-2011, Exchange, now in its eighth year, which and 17 reports have been published. brings student teachers from the island’s Another 10 applications were received seven colleges of primary education to in February 2012. These were in the do a key part of their assessed teacher following areas: mentor pedagogies practice in the other jurisdiction (also see to support pre-service teachers on pages 138-139). teaching practice; early number concepts; managing early years SCoTENS is funded by annual grants transition practices; sharing outcomes from the Department of Education in primary physical teacher education; and Science, and the Department for leadership development in Irish Employment and Learning and the Medium schools; nuns in education, Department of Education (Northern North and South; a cross-border Ireland). A significant proportion of doctoral research in education its funding comes from institutional conference; cyber-bullying and the law; subscriptions from its 35 members, who threshold concepts in language teacher are universities, colleges of education, education; and the creative education teaching councils, education trade infrastructure of Ireland. unions, education centres, curriculum councils and other bodies involved with The SCoTENS website teacher education.
Evaluation
In September 2011 SCoTENS received an extremely positive evaluation for its work between 2003 and 2011 from a team led by Professor John Furlong of Oxford University’s Department of Education.
This website (http://scotens.org) has The report’s conclusions were glowing: been updated in the past three years ‘Taken over all, the findings of our and highlights, in particular, resources on evaluation are overwhelmingly positive. special education, citizenship education Despite limited and precarious funding, and teaching and learning with digital significant dependence on the goodwill video. This has led to a sharp increase of volunteers and the support of a in the number of users. Its interactive paid secretariat with myriad other special needs section, developed by responsibilities, it has achieved an
148 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Delegates at the 9th annual SCoTENS Conference, Cavan, 29 September 2011. enormous amount. For those aware that despite its achievements, without of and involved in its work, there is SCoTENS’ continued existence, those substantial evidence that SCoTENS is achievements would rapidly fade’. highly valued across Ireland. Many of those we spoke to believed that the A number of respondents commented majority of the initiatives SCoTENS has how SCoTENS had strategically led – conferences, research projects, the positioned itself to support the work of student exchange programme – would the Departments of Education, North simply not have happened without and South, and as a result it was the organisation; its leadership and regarded very positively by administration were vital.’ those Departments. One senior academic said: ‘Our evidence makes clear that SCoTENS has enabled the development Perhaps SCoTENS’ greatest of networks and encouraged achievement has been a more direct communication and contacts between alignment between the interest and significant numbers of teacher educators actions of the teacher education in the North and South of Ireland. community and the education reform Many respondents felt that through priorities of government departments, SCoTENS they had developed a greater North and South. One indicator of knowledge and understanding of the departmental acknowledgement of such educational systems and practices has been the continuation of central across the island of Ireland. The forms of funding despite a vast change in the collaboration encouraged by SCoTENS economic circumstances. Another have, we found, stimulated genuine has been the generous and pointed professional and personal development; endorsement of the work of SCoTENS they have also, many of our respondents by Ministers and their officials, including believed, contributed to the peace a consideration of our work as part of a process by helping to normalise North South Ministerial Council meeting relationships within and between North in 2010. and South. There was widespread belief
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 149 On its leadership and organisation, the Respondents argued that of particular evaluators noted: ‘Since its inception, value were the North-South SCoTENS has had the benefit of processes and networks enabled by this three very significant figures working seed funding. for it - Professor John Coolahan, as one of the two initial academics who The annual SCoTENS conferences were helped to establish the organisation, very highly regarded: ‘an overwhelming Andy Pollak, Director of the Centre for majority of respondents who had Cross Border Studies and secretary attended them thought that they offered of SCoTENS, and Patricia McAllister, them good opportunities for professional SCoTENS administrator. Professor dialogue, helped them learn about Coolahan, although now formally retired, education elsewhere in Ireland, helped continues to play a key role in the them develop their informal contacts organisation, particularly in terms of its and networks across the island and their links with political leaders and senior own professional practice.' officials especially in the Republic. Of the senior academics we met, it was clear The SCoTENS website was also praised that Professor Coolahan was the most by the evaluators as ‘a rich resource’ sensitive and skilful in understanding containing ‘much helpful and highly and negotiating the complex political informative material which is, in many terrain that an organisation, such as cases, of a very high quality.’ SCoTENS, has to face. The fact that the organisation has thrived so successfully INTERNATIONAL CENTRE for eight years, we felt, was in no small FOR LOCAL AND REGIONAL part due to his expert leadership’. DEVELOPMENT
The report also praised the quality of administrative support provided by Mrs McAllister, which was ‘universally acknowledged’, and Mr Pollak’s ‘vision in relation to the broader politics of cross-border work and his ability to develop appropriate networks beyond The International Centre for Local the teacher education community’. and Regional Development (ICLRD) is a North-South-US partnership The evaluation said that the completed established in 2006 to explore and research projects seed funded by expand the contribution that planning SCoTENS (receiving £2000-£6000 and the development of physical, each) were ‘generally judged to be social and economic infrastructures very good value for money by, for can make to improving the lives of example: developing sizeable teams people on the island of Ireland and involved in research projects; preparing elsewhere. The partner institutions are extensive reports; organising highly the National Institute for Regional and topical conferences; building networks; Spatial Analysis (NIRSA) at the National developing toolkits or resources.’ University of Ireland, Maynooth; the
150 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Speakers at the 7th annual ICLRD Conference in Dundalk on 19 - 20 January 2012: (from left to right) Professor Karina Pallagst, Professor Mary Corcoran, Caroline Creamer, Alice Charles, Professor Deborah Peel.
School of the Built Environment at the the Deputy Director is Caroline Creamer University of Ulster; the Institute for of NIRSA, NUI Maynooth, and the International Urban Development in Assistant Director is Dr. Neale Blair of Cambridge, Massachusetts; and the the School of the Built Environment, Centre for Cross Border Studies in University of Ulster. Armagh. Each partner brings together complementary expertise and networks The ICLRD operates out of the Centre on both a North-South and East-West for Cross Border Studies' offices in basis, creating a unique all-island and Armagh and receives administrative international centre. and management support from the Centre. The ICLRD continues to expand its collaboration with other institutions and In 2011, the ICLRD was supported by has built up close working relationships the EU’s INTERREG IVA Programme with individual faculty and researchers through the Special EU Programmes from Harvard University, Queens Body (through the CroSPlaN Project) University Belfast and Mary Immaculate and by the Irish Government through College, University of Limerick. It is very the Higher Education Authority. Both open to involving other academic and governments on the island of Ireland research institutions in its activities. have been – and remain – very supportive of the ICLRD, with the The Director of the ICLRD is John Department of Environment, Community Driscoll, vice-president of the Institute and Local Government (DoECLG) in for International Urban Development; Dublin supporting research and the
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 151 Department for Regional Development Through its research and professional (DRD) in Belfast seconding a senior education programmes, the ICLRD planner (Jim Hetherington) to the works with policy-makers and local ICLRD management team. The ICLRD leaders to improve the environments has over the years received funding in which people in Ireland, North and from the International Fund for Ireland South, live and work, with particular as well as commissioned research emphasis on the needs of marginalised from InterTradeIreland, the Strategic and divided communities. It combines Investment Board (NI) and the Irish the promotion of regional planning Central Border Area Network (ICBAN). and development as a tool for competitiveness with local planning and The ICLRD provides independent, development as a way to joined-up research and policy advice remedy the continuing problems of on cross-border and all-island spatial social disadvantage. planning and local and regional development. It plays a proactive role in Current research projects peace and reconciliation on the island by bringing together policy-makers, Each year, the ICLRD undertakes practitioners and academics, North and action research that contributes to an South, to work on common goals in the understanding of the complex all-island areas of coordinated spatial planning and cross-border dynamics of change and social and economic development in Irish towns and rural areas, including at local, regional and national levels. It cross-border communities. Since its does this through research, policy advice inception, the ICLRD has organised and publications; professional education its work around three spatial scales: and capacity building programmes EU and all-island; sub-regional, which that assist local governments and includes cross-border; and local. communities to translate policy Through its activities, the ICLRD is into ‘on the ground’ action; and facilitating forums to foster the active outreach and networking that exchange of experience and best includes conferences, workshops and practices. It is also supporting North- international cooperation and exchanges South / East-West inter-regional to identify best practices. cooperation, including on a cross-border basis, along lines encouraged by the Stimulating economic growth and European Union. Its current research improving living conditions to alleviate projects include: and prevent social conflict is at the heart of the Centre’s mission. The Sustainable Spatial Development: ICLRD is focused on building the Integrating River Basin capacity of regional and local authorities, Management with Spatial Planning development agencies, border Policy and Practice networks and community and voluntary organisations to identify strategic areas In association with the report, of cooperation. Responding to the Environmental
152 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Challenge? Spatial Planning, Cross- • Spain: Mancomunidad Valle del Border Cooperation and Spatial Nalón in Asturias Planning, two international case • Canada: Ontario and its Local studies are being produced as ‘stand Services Realignment Programme alone’ reports: • New York State: Local Government • The Elbe River Basin District: Efficiency Programme and Lancaster Integrated Cross-Border County. Management in Practice, and • The Connecticut River Basin: These case studies offer insights into Integrating Water Quality the rethinking of public services within Improvements with Regional Land geographical areas that may include Use Plans. more than one local authority, and how both structured and voluntary The case studies illustrate that good associations can be used to provide river basin management practices infrastructure, broadband, waste have moved towards engagement and management, training and local negotiation, rather than relying solely supports. The cases also highlight the on compliance measures or regulatory associated challenges of multi-level enforcement. The cases also illustrate governance in the provision of services that while directives and regulations and the importance of leadership are set centrally, it is the sub-regional and trust in paving the way for future management of the river basin itself cooperation. This research will be of that is key to bringing together civic, interest to senior management in local business and environmental leadership government and regional authorities, in a meaningful way. This is especially regional development agencies, cross- the case when spatial planning decisions border networks and agencies, and are made at the local level. national policy-makers.
Shared Services Applying the Functional Territories Concept: Planning Beyond This research focuses on the timely Boundaries issue of shared services and discusses the emerging shared services agenda This study suggests that flexible for both jurisdictions on the island of development strategies are needed Ireland. The study describes creative when developing policies and plans that ways in which local governments can can respond to the ‘functional territories’ work together to more effectively use that often cut cross administrative available resources when delivering boundaries. These functional territories services around citizen needs. It draws are defined by where residents commute on international good practices in the to work, shop, engage in recreation and adoption of shared service agendas. access different services. The four case studies are: • Scotland: Glasgow and the This report demonstrates the application Clyde Valley of an evidence-based approach to
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 153 determining access to retail services support evidence-based planning as by drawing on mapping modules and part of CroSPlaN. spatial analysis tools developed by the All-Island Research Observatory • The Island of Ireland Housing at NUI Maynooth (AIRO – see www. Monitoring Tool, launched in airo.ie). Using retail development in the May 2011, provides an interactive Sligo-Enniskillen area as an example, mapping and querying tool the research team illustrates how retail for housing market indicators, functions in Enniskillen and Sligo do not combining for the first time data overlap and that the average distance from both Ireland and Northern to the nearest grocery retail store in the Ireland. The mapped outputs study area is just under ten minutes. assist in understanding the spatial The study shows, for example, the gap implications and outcomes of in access to retail markets for the elderly policy decisions and interventions living alone and in rural areas. Using over time. retail as a prototype, this research has • The All-Island Accessibility broader implications by demonstrating Mapping Tool will map levels of how planners in regional and local access to key services across the authorities can use existing web-based island in areas such as education, tools to analyse access to different types health, transport and emergency of services. services. • The All-Island Deprivation Index Evidence-based planning will facilitate, for the first time, a comparative analysis of deprivation Much of the ICLRD’s work over the at a regional level within areas such past year has been undertaken as as the Irish border region. This Index part of the Cross-Border Spatial can supplement the existing indices Planning and Training Network used within Ireland and Northern (CroSPlaN), an EU INTERREG IVA- Ireland that are incompatible with funded programme administered by each other, and help researchers, the Special EU Programmes Body. communities and programmes Operated in association with the Centre to better understand the spatial for Cross Border Studies as part of the distribution of deprivation. Both Ireland/Northern Ireland Cross-border AIRO and ICLRD hope to further Cooperation Observatory (INICCO), test this methodology with the CroSPlaN is a three-year programme 2011 Census data for Ireland and of research, training and workshops Northern Ireland. in Northern Ireland and the Southern • Towards a Spatial Monitoring border counties. Framework for the Island of Ireland: A Scoping Study The ICLRD, together with its sister will provide recommendations organisation AIRO, is currently involved regarding the development of in four applied research activities to common indicators and monitoring frameworks set out in the Spatial
154 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Strategies on the Island of Ireland: The Journal of Spatial Planning in Framework for Collaboration report. Ireland was launched at the sixth annual It draws on international experience ICLRD conference in January 2011. at European level and elsewhere in The first issue included articles on the the UK. The emergence of multiple challenges of planning and governance spatial planning initiatives from the reform on both sides of the Irish border; Irish cross-border region further planning for sustainable communities; reinforces the need for a coordinated balancing private sector interests with approach, informed by good the ‘common good’ in planning; cross- practice internationally. The study border planning in the greater Basel will provide a valuable source of region between Switzerland, France expert advice for policy-makers and and Germany; and how NGOs and practitioners at national and regional academics in the Boston region have government levels. pioneered new methods of evidence- informed planning. Borderlands: The Journal of Spatial Professional education Planning in Ireland Under the CroSPlaN initiative, the ICLRD Borderlands: has been rolling out a professional The Journal of education programme that has, to Spatial Planning date, included three executive training in Ireland is programmes for council officials, elected published annually representatives and the private sector in and covers a range three areas in the Irish border region: of topics of interest to academics, • Irish Central Border Area Network practitioners and policy-makers region (ICBAN) involved in spatial planning and local • The North West region and regional development. The January • Newry/Dundalk ‘twin city’ region 2012 edition of the Journal, launched by Frank McDonald, Environment Each programme was tailored to help Editor of The Irish Times, at the seventh local government and the business annual ICLRD conference, includes community to engage with the articles on cross-border river basins; spatial planning agenda and build an pathways to managing regional growth; awareness of the benefits of regional modelling infrastructure investments; cooperation among local authorities and the development of a cross-border other key stakeholders in the border deprivation index; marine spatial region. Each programme introduced planning; reinstating ‘kids’ into planning carefully selected case studies of policy and practice; and the key links international good practice; provided between spatial planning, data and external speakers and facilitated working housing policies. groups to help participants to assess their current level of cross-border The inaugural issue of Borderlands: cooperation, develop suggestions for
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 155 improvement, and propose institutional North West Training Programme: mechanisms to promote future October 2010 – June 2011 collaboration. This programme focused on the theme of Fostering Growth through ICBAN Region Training Programme: Cooperation in the North West Region. October 2011 – December 2011 Donegal County Council, Derry City This six-module training programme, Council, the Ilex Regeneration Company Harnessing diversity in a shared in Derry, and representatives of future, was developed in association Strabane and Limavady District Councils with the 10 councils that make up participated in this programme, which the Irish Central Border Area – five aimed to lead to a deeper understanding North and five South. As with the of the potential of the North West previous programmes, the modules Region and the role of the cross-border were delivered through a mix of invited NW Partnership Board in furthering expert speakers, facilitated working strategic cooperation in the linked group discussions and wider networking gateway between Letterkenny and opportunities through additional Derry/Londonderry. seminars and workshops. Unlike the previous programmes, this training The materials introduced through the programme engaged with senior modules and the ideas generated management only from the 10 councils. through working group discussions were incorporated into the cross- This has already helped authorities border activities of the Donegal County in this cross-border region to identify Development Plan, the North West opportunities for potential cooperation Partnership Board, and the ‘One Plan in the identified priority areas of shared for Derry-Londonderry’. Having won services; tourism, culture, diaspora the designation as the UK’s Capital of and creative industries; and energy Culture for 2013, potential thematic and renewables. It provided an intense areas for cross-border cooperation for space (the modules were held at two- Derry/L’Derry include tourism, creative week intervals) in which the councils industries and cultural programming. worked together to research and refine Other priority cross-border themes local and regional development issues include enterprise development; for the area, as well as activities linked vocational training and job creation; and to the ongoing ICBAN-led INTERREG- the green economy and sustainable funded Spatial Planning Initiative. The energy. There are also important participating councils – with the support cross-cutting themes such as greater of both the ICLRD and ICBAN – fed their accessibility to the North West region, conclusions and recommendations into transportation and spatial planning. a regional spatial vision plan that has been recently commissioned by ICBAN.
156 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Newry/Dundalk Twin City Region Advisory Forum; and project teams for Training Programme: November implementation. The agreement was 2009 – May 2010 approved by the respective councils Building on a previous ICLRD study, in November 2010 and launched in The Newry-Dundalk Twin City Region: Brussels in March 2011. Supporting the Implementation of Cross-Border Collaborative Frameworks Completed research projects (January 2009), the ICLRD organised a training programme, Shaping and Responding to Managing Cross-Border Development, the Environmental for council officials, councillors and Challenge? private sector representatives from Spatial Planning, Newry and Mourne District Council, Cross-Border Louth Local Authorities and Down Cooperation District Council. The training raised and River Basin awareness of the challenges and Management opportunities that the region faces, as (2011) well as the need for collaborative action, This study including the creation of stronger links examines the key between towns in the wider Newry- role that spatial planning should play Dundalk ‘twin city’ region, such as in the implementation of River Basin Banbridge and Drogheda. Management Plans (RBMP) under the EU Water Framework Directive (WFD). As a follow-up, the two councils The study takes an all-island and cross- requested ICLRD assistance to develop border perspective and draws on key an agreement that would build on their insights through ‘good practice’ case existing areas of cooperation, and open studies from Germany and the up further opportunities for the sharing United States. of services and joint management of key resources. The ICLRD outlined different The study sets out strategic options types of instruments and institutional regarding the governance of RBMP structures that could be used to and WFD implementation in both facilitate cross-border cooperation Ireland and Northern Ireland. These and worked with the councils to draft options, drawing on research and a Memorandum of Understanding interviews with key stakeholders, can that would identify the initial areas of inform discussions among government cooperation. These included emergency departments, environmental agencies planning; renewable energy and green and other public sector bodies on both technology; tourism and recreation; sides of the Irish border. The case and sustainable economic growth and studies pay particular attention to the job creation. Cooperative structures benefits of joint management of cross- were also outlined and include a joint border River Basin Districts. The study Committee of Elected Members; a raises important questions about the joint Senior Management Group; an role of spatial planning in environmental
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 157 management and sets out seven key particularly in the EU, is moving towards requirements for effective coordination ‘placed-based strategies’ as promoted between river basin management and in the EU 2020 Strategy. spatial planning. These requirements include recommendations in relation All Change But to communication, development of Any Alignment? expertise, leadership capacity, allocation The Impact of of resources and inter-jurisdictional the Proposed cooperation. Governance and Planning Governance and Planning: An Reforms across International Perspective (2010) the Island of The ICLRD published a series of Ireland on Inter- international case studies in inter- Jurisdictional jurisdictional and cross-boundary Planning (2010) governance and planning to Completed in June 2010, this report complement the recently concluded focuses on inter-jurisdictional planning study All Change But Any Alignment? and multi-level governance and was (see next column). This research published on the ICLRD website. The presents examples of innovative practice study considers: in collaboration in the following areas: • The various iterations of, and • Basel Metropolitan Area – spanning processes involved in, the NI Review Germany, France and Switzerland, of Public Administration, specifically this case study highlights as it relates to the reform of local emerging cross-border cooperation government; in spatial planning at the sub- • If and/or how inter-jurisdictional regional level; spatial planning policies and • Mancomunidades in Spain – focuses operations will be more closely on provision of services through aligned following the various reforms inter-municipal collaboration at the to governance and planning on the level of the micro-region; and island of Ireland; and • Boston Metropolitan Area – • Whether, in the context of the provides examples of how to current economic downturn, there promote regional development is greater political and community through cooperation among support for the alignment of spatial local governments, metropolitan planning policies. planning organisations, the business community and research Developing a Strategic Alliance organisations. between Newry and Mourne District Council and the Louth Local Together, the three case studies provide Authorities: Background Report practical examples of how cooperation (2010) in local and regional development can Louth Local Authorities and Newry and be shaped by collaborative efforts. They Mourne District Council took a major highlight how territorial cooperation, step in the promotion of cross-border
158 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 partnership in the mapping functional border region with territories across the signing of a the island of Ireland. Memorandum of In undertaking a Understanding preliminary analysis in March 2011 of Functional Urban to cooperate in a Areas (FUAs) number of thematic in Ireland and areas, including Northern Ireland, emergency this study included planning, renewable energy and green maps of natural technology, tourism and recreation, catchments, travel-to-work catchments, sustainable economic growth and origin-destination data, gravity models job creation. and urban functional specialisations. The focus of Phase I of this study was In support of this development, the to explore the various possibilities of ICLRD report considered a variety of mapping functional territories to produce legal instruments to facilitate cross- a set of outputs based on datasets border cooperation including Euro- that were available to the research regions, European Groupings for team. The resulting report illustrated Territorial Cooperation (EGTC), European the contribution that dynamic spatial Economic Interest Groupings and ad analysis of urban functions can make hoc agreements. It recommended that in the profiling of the relational status, the cross-border local authorities adopt performance and potential of urban a legally non-binding Memorandum centres across the island. The research of Understanding as the basis for was carried out by a multi-disciplinary cooperation; the agreement could be team in ICLRD and funded by the Higher expanded to include other regional Education Authority (HEA). stakeholders in the future. Living Together – Following the signing of the An Investigation Memorandum of Understanding in of Case Studies Brussels in March 2011, a new Louth/ and Strategies Newry and Mourne Joint Council for Promoting Committee was established to progress Safe, Integrated joint initiatives and the two councils are and Sustainable now sharing council officers and staff in Communities a common office to implement the MoU. (2009) This research Delineating Functional Territories project investigated Across the Island of Ireland: An initiatives and policies in both Northern Initial Scoping (2010) Ireland and the Republic of Ireland to Published in October 2010, this report improve and build subsidised housing considered the various options for in mixed communities through the lens
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 159 of six case studies: Springfarm (Antrim), Both Draperstown and Duhallow have the Irish Street and Gobnascale interface been engaged in the process of rural (Londonderry/Derry) and Carran restructuring for the past 25 years and Crescent (Enniskillen) in Northern Ireland, have built up a wealth of experience and Cranmore (Sligo), Mahon (Cork) over this time. For Emyvale-Truagh- and Adamstown (Dublin) in the Republic Aughnacloy, the challenges facing this of Ireland. Together, they provide a rural community have been further cross-section of the challenges faced exacerbated by its cross-border location by communities working to promote or and the impact of decades of back- provide mixed housing;the strategies to-back policy development across that have helped address these both administrations (North and South). challenges, and opportunities to create Building on over 80 interviews, as well and maintain housing that is safe, as a wealth of secondary data, the prosperous and open to all. The six case research team also developed a series studies were published in association of working papers on each area and with the Northern Ireland Housing held a one-day conference on the issue Executive (NIHE) in Belfast and the of rural restructuring in May 2009. Housing Agency in Dublin. Newry-Dundalk Rural Twin City Region: Rural Restructuring: Local Sustainable Solutions to the Rural Challenge Restructuring: Supporting the Local Sustainable Implementation
P ublished by International Centre for Local and Regional Development (ICLRD) 39 Abbey Street Solutions to the of Cross-Border Armagh BT61 7EB Northern Ireland 2009 Rural Challenge Collaborative Copyright © ICLRD (2009) Frameworks (2009) This report was ICLRD undertook launched by this research
Local Sustainable Solutions to the Rural Challenge the Rural to Solutions Sustainable Local Restructuring: Rural Michelle Gildernew initiative in Caroline Creamer Neale Blair Karen Keaveney Brendan O’Keeffe John Driscoll MLA, Minister of cooperation with Agriculture and Louth County Council, Newry and Rural Development in June 2009. The Mourne District Council, Dundalk culmination of a 12-month research Town Council and InterTradeIreland. Its project, the research considered the objective was to identify (a) potential role of rural restructuring and economic projects that can bring long-term diversification, together with the growing benefits to the ‘twin city’ region importance of the urban-rural interface, of Newry-Dundalk and (b) models in the achievement of balanced spatial of cooperation to assist in their development. The programme of implementation. research focused on three rural areas: Draperstown in Magherafelt District; The resulting report was launched in Emyvale-Truagh-Aughnacloy on the February 2009 by Conor Murphy, MP Monaghan-Tyrone border, and Duhallow MLA, Minister for Regional Development on the Cork-Kerry border. in Northern Ireland, and John Gormley, TD, Minister for the Environment,
160 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Heritage and Local Government of the connected, cross-border areas, with Republic of Ireland, at the Carrickdale a particular emphasis on collaborative Hotel, Ravensdale, County Louth. The efforts that have supported local report brought together recent and economic development, social cohesion current research on how to realise the and mutual benefits. In addition, benefits of cross-border collaboration the study sought to identify factors in the Newry-Dundalk sub-region associated with successful collaboration through integrated planning and through reviewing projects with a history development strategies. of successful interaction and outcomes including institutional Fostering Mutual frameworks for collaboration. Benefits in Cross- Border Areas: The Atlas of The Challenges the Island and Opportunities of Ireland in Connecting – Mapping Irish Border Social and Towns and Economic Villages (2008) Change (2008) This 18-month On the occasion of the ICLRD's third research programme focused on the annual conference in January 2008, relationships between cross-border ICLRD and AIRO launched The Atlas of towns and villages in the mid-border the Island of Ireland, a set of detailed full region. The final report was launched in colour maps and cartograms of varied Blacklion, County Cavan in November socio-economic indicators across the 2008 by the author, Colm Toibin. The island. The atlas, co-authored by Justin research considered the relationship Gleeson, Rob Kitchin, Brendan Bartley, and connectivity that exist between five John Driscoll, Ronan Foley, Stewart cross-border settlement groupings and Fotheringham and Chris Lloyd, was identified and examined the challenges launched by Tommie Gorman, Northern facing and opportunities within these Editor of Radio Telefis Eireann (RTE). micro-regions. The border towns and villages included in the study were: Spatial Strategies • Lifford-Strabane on the Island • Kiltyclogher-Cashel/Scribbagh- of Ireland: Garrison-Rossinver Development of • Blacklion-Belcoo-Glenfarne a Framework for • Clones-Rosslea-Newtownbutler- Collaborative Lisnaskea Action (2006) • Castleblayney-Crossmaglen This report was prepared by The key objective of this study was to the ICLRD and identify good practices in joined-up commissioned planning and regeneration for inter- by InterTradeIreland on behalf of
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 161 the Department of the Environment, the private sector and planners in Heritage and Local Government in the learning from the past and planning Republic of Ireland and the Department a new future. for Regional Development in Northern 3. Planning the Future: bringing Ireland. The report outlined measures together people to consider the to better align spatial planning, future role of planning and local infrastructure and cross-border projects and regional development and to support long-term economic the implications of emerging EU competitiveness, and was endorsed in territorial agendas. a joint communiqué by the British-Irish Intergovernmental Conference. Both The conference explored the many governments committed themselves to challenges faced by Ireland due to developing a framework for collaborative the severe downturn in the world action between the two existing spatial economy and the legacy of over a strategies on the Island. decade of sometimes ill-planned development. Delegates discussed the Conferences knock-on implications for cross-border cooperation, sustainable development
Seventh Annual Seventh Annual and engaging local authorities, ICLRD Conference 19-20 January 2012 Conference: businesses and residents in reshaping Crowne Plaza Hotel, Dundalk Planning for a their communities. New Future: Can Planning and Speakers and session chairs included Cross-Border Professor Allan Wallis, University of Cooperation Colorado; Professor Karina Pallagst, Planning For A New Future deliver change Kaiserslautern University of Technology, Can Planning and Cross-Border Cooperation Deliver Change in Ireland and Europe? in Ireland and Germany; Maria-Jose Doval-Tedin, DG Europe? Regional Policy, European Commission; 19-20 January Jenny Pyper, NI Department of Social 2012, Crowne Plaza Hotel, Dundalk Development; Anne Garvey, Head of Planning Service, NI Department Attended by 135 people, the seventh of Environment; Colin Stutt, Colin ICLRD conference (part of the CroSPlaN Stutt Consulting, Belfast; Professor programme) considered models of Deborah Peel, University of Ulster; collaboration across borders and Alice Charles, Alice Charles Planning, between local authorities and other key Dublin; Professor Mary Corcoran, agencies. It was organised around three NUI Maynooth; Justin Gleeson, All- main sessions: Ireland Research Observatory; Vincent 1. The Collaborative Framework: Goodstadt, University of Manchester; the role of the new regionalism and Kelly O’Brien, Chicagoland Tri-State in enhancing cooperation within Metropolitan OECD Review. functional regions. 2. Leadership through Planning: debating the role of communities,
162 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Sixth Annual Chartered Institute of Housing Northern Conference: Ireland; Dermot Byrne, Eirgrid; Frank The Changing McDonald, The Irish Times; Gary Business, McDarby, University College Dublin; Community and Tracy Meharg, Invest Northern Ireland; Spatial Planning Feargal McCormack, FPM Accountants; Landscape: Dr Patricia O’Hara, National Statistics Doing More Board; and Dr James Cunningham, with Less Centre for Innovation and Structural 20-21 January Change, NUI Galway. 2011, Radisson Blu Hotel, Sligo Fifth Annual Conference: Attended by 110 people representing Preparing for Economic Recovery: central, regional and local government, Planning Ireland, North and South, elected representatives, policy makers, out of Recession community activists, academics and 21-22 January 2010, Killyhevlin Hotel, business representatives, this two- Enniskillen, Co. Fermanagh day conference was sponsored by the Special EU Programmes Body Over 130 people atended this under CroSPlaN. The conference was conference, which was organised organised around four sessions: around four sessions: 1. Planning for Economic Recovery 1. Health Check on Economic and Sustainable Growth Development: Planning and 2. Planning for Homes and People: Infrastructure New Challenges, New Agendas 2. Planning and Economic Recovery: 3. Planning for Shared Innovation: the Social and Community Infrastructure to support Innovation- Dimension Led Recovery 3. Building the Platform for Economic 4. A Changing Landscape: Networking, Recovery Collaborating and Achieving Greater 4. Recovery through Collaborative Efficiencies Spatial Planning.
Speakers and session chairs included: Among the speakers were Declan Kelly, Nicholas Retsinas, Harvard Business US Economic Envoy to Northern Ireland; School; Shaun Henry, Special EU Professor John Fitzgerald, Economic Programmes Body; Professor Greg and Social Research Institute, Dublin; Lloyd, University of Ulster; David Walsh, Pat Colgan, Chief Executive, Special Department of Environment, Heritage EU Programmes Body; Charlotte and Local Government; Jenny Pyper, NI Kahn, Director of the Boston Indicators Department for Regional Development; Project at the Boston Foundation, and Brian Rowntree, Northern Ireland Holly St.Clair, Director of Data Services Housing Executive; Professor Rob at the Boston region Metropolitan Kitchin, National Institute for Regional Area Planning Council; Pat McArdle, and Spatial Analysis; Grainia Long, former Ulster Bank Chief Economist
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 163 and Irish Times columnist; Conor Supporting Evidence-Informed Skehan, Head of the Environment and Spatial Planning and Analysis: Planning Department, Dublin Institute of Towards the Development of All- Technology; Wesley Shannon, Director, Island Spatial Databases Local Government Policy Division, NI 15 November 2007, Crowne Plaza Department of the Environment; Hubert Hotel, Dundalk Kearns, Manager, Sligo County Council; Patricia Potter, Director of the Dublin Second Annual Conference: Regional Authority; Dr Celine McHugh, Implementing a Framework for Senior Policy Adviser with Forfas, and Collaborative Action: Spatial Brian Murray, Chief Executive of the Strategies on the Island of Ireland Workspace Group. 9 November 2006, Canal Court Hotel, Newry, Co. Down Rural Restructuring: Local Sustainable Solutions to the Rural First Annual Conference: Regional Challenge and Local Development Strategies 8 May 2009, Blackwater Learning on the Island of Ireland – Addressing Centre, Knockconan, Emyvale, Key Issues and Building Capacity Co. Monaghan 27 May 2004, Radisson Hotel, Athlone, Co. Westmeath Fourth Annual Conference: Achieving Balanced Regional As well as organising its own Development: Dynamic Regions, conferences, the ICLRD has been Spatial Strategies and Collaboration invited to present its work at a number 22-23 January 2009, Radisson Hotel, of events hosted by other agencies in Letterkenny, Co. Donegal recent years. These included:
Keynote speakers at this conference • Data Capture: Information Rich, included Steve Quartermain, Chief Insight Poor?, ICBAN Spatial Planning Officer in the Department for Planning conference, Cavan, 1 Communities and Local Government in December 2011 (Prof. Rob Kitchin London; Jim MacKinnon, Director for and Justin Gleeson) the Built Environment in the Scottish • The ICLRD: Purpose, Principles and Government; and Grant Duncan, Head Process, Presentation on the ICLRD of the Sustainable Futures Division of the to a South African delegation from Welsh Assembly Government. Cacadu Municipality, Armagh, 22 November 2011 (Caroline Creamer Third Annual Conference: Fostering and Neale Blair) Cooperation for Local and Regional • Cross-Border Local Authority Development through Cross-Border Training Across the Island of Spatial Planning Ireland, Centre for Cross Border 17 January 2008, Armagh City Hotel Studies international conference on Cross-Border Training and Impact Assessment, Cavan, 27 October 2011 (Caroline Creamer)
164 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 • Indicator Development and Seminars and workshops Monitoring for the National Spatial Strategy and Regional Planning Planning and Local Government on Guidelines, ESPON Ireland Dublin, the Island of Ireland 28th September 2011 (Jim 30 September 2011, Dundalk Hetherington) • What is Spatial Planning? Irish Organised in association with Central Border Area Network Cooperation Ireland and Queen’s conference on Spatial Planning, University Belfast, the emphasis of this Killadeas, Co Fermanagh, 15 seminar was threefold: looking at the September 2011 (Neale Blair) growing EU territorial agenda and the • Fixing ‘Broken’ Government: opportunities this creates for enhanced Functional Territories as an Impetus cross-border cooperation across the for Reform, Regional Studies island of Ireland as demonstrated by Association Conference, University the experiences of others in Europe; of Manchester, 2 November 2010 focusing on the potential role of elected (Caroline Creamer, Neale Blair and representatives in the planning and Justin Gleeson) governance processes of each Irish • Combating Rural Poverty and jurisdiction; and considering the role of Social Exclusion, Pobal Conference, planners and councillors in decision- Drogheda, 21 October 2010 (Karen making and the extent to which Keaveney) evidence should lie at the heart of • Community Building through that process. Growing Leadership: the Challenge of the Border, Presentation to Land Banking and Housing Eisenhower-Loeb Fellows, Dublin, Development: The (New) Role of 5 May 2010 (Caroline Creamer and the Planning System 28 April 2011, Karen Keaveney) NUI Maynooth • Inter-municipal collaboration across borders: Overcoming Legal and Speakers and contributors at this Institutional Differences in the joint NIRSA-ICLRD-Border Regional Irish Border Region, American Authority event considered the state Association of Geographers (AAG) of housing development and the Annual Conference, Washington, 14 potential of land banking across April 2010 (John Driscoll) the island of Ireland with respect to • Challenges and Opportunities for housing need, unfinished estates, the Rural Regeneration on the Island property market, the planning system of Ireland, UK-Ireland Planning and emerging programmes of both the Research Conference, Anglia Ruskin Housing and Sustainable Communities University, Chelmsford, 7-9 April Agency (HSCA) and the National 2010 (Karen Keaveney) Asset Management Agency (NAMA). • Rural Interfaces: Reconciling It examined international experiences Perception with Reality, Sharing Our of asset disposal and public land Space Event, Enniskillen, 4 March development, and explored possibilities 2010 (Caroline Creamer)
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 165 and opportunities in the island of Outreach Ireland context. Irish Central Border Region Network Developing Core Strategies: (ICBAN) and North West Region Adopting a Bottom-up Approach Cross Border Group 9 March 2011, Athlone The ICLRD has been closely involved in providing guidance to ICBAN’s cross- This joint NIRSA-ICLRD-Border Regional border spatial planning activities. The Authority seminar brought together over Central Border Region Spatial Planning 120 local authority planners, elected Initiative, which has been partly financed representatives, private sector delegates by the EU’s INTERREG IVA Programme, and policy makers to exchange is a drive by ICBAN to give the region experiences in adopting core strategies distinctiveness, translating key national as required by new planning legislation plans into local and regional actions. The in Ireland. The case of how Aberdeen ICLRD provided technical assistance City and Shire produced the Aberdeen during the set-up period on how the strategic plan with the support of work programme should be shaped elected representatives highlighted the and managed to achieve the aims key role that elected councillors have in of the Initiative, while also promoting adopting longer-term planning policies. collaborative activity and skill transfer amongst council and community The Functionality of Place: groupings. The ICLRD continues to sit Determining and Mapping on the Initiative’s steering group. Functional Territories 16 June 2010, Armagh The ICLRD’s sister organisation, AIRO, also provides advice on evidence- Evidence-Informed Planning: based planning and sits on the steering Making Information Accessible committee for the Northwest Region to build Inter-Jurisdictional Cross-Border Group’s SPACEial data Cooperation capture project. 21 January 2010, Enniskillen, Co. Fermanagh Truagh/Aughnacloy Community Planning An Introduction to Smart Growth Since May 2010 the ICLRD has been 22 January 2009, Letterkenny, providing technical assistance to a Co. Donegal number of community development associations along the North Monaghan Supporting Evidence-Based Spatial / South Tyrone border. The development Planning and Analysis in Ireland: associations from Truagh, Aughnacloy, Towards the Development of All- Aghaloo, the Bawn, Loughans, Clara Island Spatial Databases and Carrickroe are working together 15 February 2007,NUI Maynooth; and on a community business and social 20 June 2007, University of Ulster economy plan. This is the first time that
166 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 these neighbouring associations have • Innovation: The Challenge of formally worked together. Building an Adaptive and Innovative Society by Dr. James Cunningham, The next phase of the groups’ work will Director of the Centre for Innovation examine the feasibility of: and Structural Change (CISC) and • A Blackwater Valley branded Senior Lecturer at the J.E. Cairnes business development and School of Business & Economics, marketing initiative; NUI Galway (May 2011); • An Independent Living Project • Doing More with Less: A Business providing support services to Perspective by Feargal McCormack, lone dwellers and older people, FPM Chartered Accountants in addition to community-based (January 2011); employment opportunities, • Recovery Scenarios for the Two especially for women; and Irish Economies by Professor John • A Youth Employment, FitzGerald, Economic and Social Entrepreneurship and Leadership Research Institute (July 2010); Programme. • Evidence-Informed Spatial Planning: A Metro Boston Perspective by Holly Briefing Paper series St Clair, Metropolitan Area Planning Council (MAPC), Boston (May 2010); In November 2009 the ICLRD launched • ESPON: A New Practical European its Briefing Paper series. This involves Research Agenda for Territorial the publication of short, timely articles Development by Cliff Hague, ESPON that explore how various forms of Contact Point UK and Brendan planning, enacted at different spatial Bartley, ESPON Contact Point scales, can contribute to better Republic of Ireland (Feb. 2010); collaboration on the pressing issues • The Conditions Necessary for facing both the Republic of Ireland Gateway Development and the Role and Northern Ireland. By considering of Smaller Gateways in Economic both jurisdictions on the island and the Development by Professor Jim potential synergies and efficiencies that Walsh, NUI Maynooth and Cormac can be realised through cooperation, the Walsh, Urban Institute, University series aims to provide a more rounded College Dublin (Jan. 2010). view than considering each jurisdiction in isolation. Recent articles include: Website • Reflections on the Boom: A imeT for Reform by Dr. Patricia O’Hara, The International Centre for Local and Chairperson of the National Regional Development’s website is at Statistics Board and Adjunct www.iclrd.org. Professor at the National Institute for Regional Spatial Analysis (NIRSA), NUI Maynooth (August 2011);
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 167 Trinity College Dublin; Cork Institute of Technology and the Centre for Cross Border Studies (debates organiser: DEBATING SCIENCE ISSUES Patricia McAllister).
In 2012 the Centre (along with the W5 The 2012 topics for debate are interactive discovery centre in Belfast) stem cell research; health and self- became the Ulster regional organisers testing; genetically modified food; of the Debating Science Issues all-island nanotechnology; rare diseases; and schools debating competition, led by vaccination against seasonal and the Regenerative Medicine Institute pandemic flu. The four Ulster schools (REMEDI) at National University of in the 2012 regional eliminators are Ireland Galway and funded by the Banbridge Academy, Belfast High Wellcome Trust. School, Castleblayney College, and St Colmcille’s High School, Crossgar. The Debating Science Issues is a competition which invites young people to engage in debate on the cultural, EDUCATION FOR RECONCILIATION societal and ethical implications of advances in biological and other The Centre is a partner with the sciences. It is open to students City of Dublin Vocational Education in the senior cycle of secondary Committee’s Curriculum Development school in the Republic of Ireland and Unit in the 2009-2012 phase of the Northern Ireland. It is coordinated by cross-border, cross-community nine research, medical and science Education for Reconciliation project, centres all over Ireland: REMEDI; the subtitled ‘Securing the Future through Alimentary Pharmabiotic Centre at Active Citizenship.’ The aims of this EU University College Cork; the Biomedical PEACE III-funded project, which in its Diagnostics Institute at Dublin City successive phases has been working University; the Royal College of with teachers in both jurisdictions since Surgeons in Ireland in Dublin; W5 in 1998, have remained consistent. Belfast; CLARITY, a joint University They are: College Dublin-DCU Centre for Science, • To contribute to peace and Engineering and Technology; CRANN, reconciliation, human rights and a nanoscience research centre at justice through citizenship education
168 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 • To enable young people to develop restorative practices and peer mediation the understanding, attitudes and within the school community. skills to be active citizens in relation to reconciliation, conflict and 42 teachers from 25 schools across controversial issues within their Northern Ireland and the northern communities and society part of the Republic of Ireland are • To embed reconciliation as a key involved in the current phase of the element within citizenship education. project. They are drawn from a wide range of school types (grammar and The project aims to achieve this secondary – Protestant and Catholic through a cross-border programme of – and alternative education centres professional development for citizenship in the North; community, vocational education teachers in secondary and gaelscoileanna in the Republic) schools, and through the development from Belfast; Newtownabbey and of teaching and learning resources Crumlin, Co Antrim; Ballynahinch and on issues of local and global conflict, Dromore, Co Down; Keady, Co Armagh; conflict resolution, human rights and Strabane and Dungannon, Co Tyrone; peace building. The project particularly Enniskillen, Co Fermanagh; Belturbet, supports teachers to develop key Co Cavan; Arranmore Island, Bundoran, skills such as critical thinking in relation Carndonagh, Dungloe and Falcarragh, to controversial issues like conflict, Co Donegal; Dunleer and Dundalk, reconciliation and human rights. Over 80 Co Louth; Sligo, and Drumshambo, schools have participated in Education Co Leitrim. For further information see for Reconciliation since its inception. www.reconciliation.ie or contact [email protected] Reconciliation and peace building require us to look at the difficult issues which have often been ignored in PAST RESEARCH PROJECTS schools because they are deemed too controversial. Education for The Centre has commissioned Reconciliation is currently supporting and published 20 cross-border in-service training on a classroom research projects in the fields of resource, From Prison to Peace, telecommunications developments, with the involvement of loyalist and health services, disadvantage in republican former paramilitaries. It is education, EU funding programmes, also developing teaching resources local government links, mental health on equality and diversity, and on promotion, waste management policies, international conflict resolution (a case local history societies, animal health, the study of the Palestine/Israel conflict in euro, local sustainable development, relation to human rights and international diversity in early years education, law). It is carrying out action research on science and citizenship education, developing young people’s voice in the environmental studies in primary classroom, and also offers initial support schools, public sector training, hospital to participating schools in developing services, mental health research,
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 169 government services to minority ethnic Belfast, and Dr John Keating of National groups, and impact assessment. University of Ireland Maynooth. The project was sponsored by eircom. These projects involved researchers drawn from 14 universities, colleges, Cross-Border Co- independent research centres and operation in Health consultancy firms in Ireland and Britain: Services in Ireland Queen’s University Belfast, University of (2001) Ulster, Dublin City University, University A study of the College Dublin, National University of past, present and Ireland Galway, National University of potential for future Ireland Maynooth, St Patrick’s College co-operation in health Drumcondra, Stranmillis University services across the College, the Institute of Public Irish border by a research team led by Administration, Belfast City Hospital, Dr Jim Jamison, formerly director of Dundalk Institute of Technology, the the Health and Social Care Research London School of Hygiene and Tropical Unit at Queen’s University Belfast, and Medicine, Horwath Bastow Charleton, including Professor Martin McKee of and the Centre for Cross Border the London School of Hygiene and Studies itself. The research assignments Tropical Medicine, Dr Ciaran O’Neill under the 2005-2008 North/South of the University of Ulster, and Ms public sector training project also Michelle Butler of the Institute of Public involved civil and public servants from Administration in Dublin. both jurisdictions. Ireland’s Learning The Centre has published the following Poor: Adult research projects: Educational Disadvantage and The Evolution Cross-Border Co- of Telecom operation (2001) Technologies: A study of the needs Current Trends of the more than a and Near-Future million people on the Implications (2001) island who left school A number of with few or no qualifications by Dr case studies of Mark Morgan of St Patrick’s College, developments in Drumcondra, and Mr Paul McGill, mobile and wireless formerly education correspondent of the telephony across the Irish border from Belfast Telegraph. They concluded that a research team led by two of Ireland’s current policies in both jurisdictions were leading specialists in information far removed from a vision of lifelong retrieval, data analysis and image and learning which allows people of all ages signal processing: Professor Fionn and social classes equal access to Murtagh, then of Queen’s University education and training.
170 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Creating Living outbreak by the Institutions: Centre’s research EU Cross-Border manager, Dr Patricia Co-operation after Clarke, with comments the Good Friday from the Departments Agreement (2001) of Agriculture in Belfast A study by Professor and Dublin. Issued Brigid Laffan and exactly a year after Dr Diane Payne of the original outbreak the Institute for British-Irish Studies in England, the report’s findings were at University College Dublin, which praised by the two Ministers, Brid analysed the interaction between the Rodgers and Joe Walsh, as “extremely North-South Institutions set up under valuable” in helping the Departments the Good Friday Agreement – notably to formulate actions to deal with animal the North/South Ministerial Council and health emergencies. the Special EU Programmes Body - and the EU’s funding programme for cross- Promoting Mental border co-operation, INTERREG. Health and Social Well-being: Cross- Cross-Border Border Opportunities Co-operation in and Challenges Local Government: (2002) Models of This is a two-part Management, study by a team from Development and National University Reconciliation of Ireland Galway (2001) led by Dr Margaret Barry and Ms A study by Professor Sharon Friel. It examined a number of Derek Birrell and Amanda Hayes of cross-border projects in the areas of the University of Ulster of the different postnatal depression, public awareness kinds of cross-border links between of suicide, cancer support services, local authorities, including one-to-one the mental health of young men and linkages, local government cross- mental health in rural communities. The border networks, and cross-border study also looked at the comparability partnerships involving other agencies. and compatibility of mental health data It also analysed the project management sources in the two jurisdictions. methods used, the views of the councillors involved and the involvement The Local History Project: Co- of the European Union. operating North and South (2003) This study, by Dr Jacinta Prunty, Dr The Foot-and-Mouth Disease Crisis Raymond Gillespie and Maeve Mulryan- and the Irish Border (2002) Moloney of National University of A study of the cross-border dimension Ireland Maynooth, provided the basis of the 2001 foot-and-mouth disease for the first all-Ireland register of local
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 171 history societies. inter-community conflict and tension on They identified both sides of the Irish border with a view 330 societies, but to developing a framework for preparing estimated that a young teachers working with children complete list would in the early years. It was carried out exceed 500 societies, by researchers at St Patrick's College North and South, Drumcondra in Dublin and Stranmillis involving an active University College in Belfast, Mairin membership of Kenny and Helen McLaughlin, under perhaps 28,000 persons. the direction of Philomena Donnelly and Louise Quinn. Towards a Green Isle? Local The Connecting Sustainable Axes Citizenship Development on and Science: The the Island of Connecting Axes Ireland (2004) (2005) A study of local The final report of the sustainable EU-funded Citizenship development as and Science Exchange carried out (through the Local Agenda (CaSE) Schools 21 process) by local authorities and project looked at how a group of 12-14 social partners throughout Ireland, year old students in 16 schools on by a cross-border team comprising both sides of the border deepened Geraint Ellis and Dr Bill Neill of the their understanding of the dynamic Queen's University Belfast's School of relationship between science and Environmental Planning, and Dublin- citizenship. The students explored based researchers Una Hand and Brian subjects such as air and water pollution, Motherway. It found that 54% of local waste management, GM and fair trade authorities on the island had begun a foods, renewable energy and energy process of LA21, but stressed that the efficiency. Much of the cross-border main challenge is to move from debate work centred on a shared Web resource. to action. This project was led by Professor Peter McKenna and Dr Charlotte Holland of Diversity in Early Dublin City University. Years Education North and South: Improving Implications for Government Service Teacher Education Delivery to Minority (2004) Ethnic Groups The aim of this EU- (2006). This study, funded study was to funded by the Office identify the difficulties of the First Minister facing teachers and children in areas of and Deputy First Minister in Northern
172 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Ireland (with additional funding from Removing the the Joseph Rowntree Charitable Trust Barriers: An Initial and the British Council), examined Report on the how public services such as health, Potential for education, policing and employment Cross-Border support are provided to minority ethnic Cooperation in groups in Northern Ireland, Republic of Hospital Services Ireland and Scotland. It had a particular (2007) focus on how Northern Ireland's public This short report authorities could learn from their nearest compared the planning of hospital neighbours. The research work was servicereorganisation, North and South. carried out by a partnership led by the It noted that there are different strategies National Consultative Committee on in the two jurisdictions, with Northern Racism and Interculturalism (NCCRI), Ireland placing greater emphasis on together with Piaras MacEinri from travel time and the Republic on the University College Cork, the Institute size of the catchment population. The for Conflict Research in Belfast and authors,independent Belfast researcher Organisation and Social Development Dr Jim Jamison and Dr Michelle Butler, Consultants in Edinburgh. Senior Lecturer in UCD's School of Nursing Midwifery and Health Systems, The Wind Across point to the clear scope for joint the Border (2007) hospital planning and rationalisation in This report brought the border region to benefit the health of together six award the population. winning research assignments carried Pride of our Place out by pairs and (2007) The research teams of officials as report of this cross- part of the North/ border environmental South and Cross-Border Public Sector project for primary Training Programme. They were on the schools was written proposed reopening of the Ulster Canal; by Mary Burke of an all-island service for the recycling of St Patrick's College waste fridges and freezers; expanding Drumcondra. The the CAWT-sponsored eMed renal project brought together 10-12 year information system to the whole island; olds from a group of primary schools an all-island visitor pass for heritage in Louth, Monaghan, Cavan, Tyrone, sites; setting up a cross-border training Armagh and Down to study key and accreditation system for installers environmental features in their locality of renewable energy technologies; by looking at them historically and and cross-border sharing of patient geographically, and then exploring them electronic records. in the company of their cross-border partner schools. The Chief Inspector for Northern Ireland, Marion Matchett,
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 173 called the project's final event in Armagh 11 focus groups in the border region 'a wonderful event, made all the more and case studies of service users and so by the children's enthusiasm, interest campaigning community groups in three and expertise...you have every right to areas: cancer care in the North-West; be proud of the project's achievements.' cystic fibrosis in the two jurisdictions; and the campaign for a hospital in Mental Health: The Omagh. Among the recommendations Case for a Cross- are that Patient and Public Involvement Jurisdictional (PPI) concepts in hospital planning Approach should be properly implemented and combining Policy that service users from both jurisdictions and Research should be involved in the planning of Efforts on the new services at Altnagelvin (Derry/ Island of Ireland Londonderry) and Enniskillen hospitals. (2009) The full report and an executive This study by Dr Patricia Clarke of summary are available on the CCBS CCBS explored the context of and website. challenges to the reform of mental health services (and related research) in Impact Assessment Northern Ireland and Republic of Ireland. Toolkit for Cross It compared the two main mental health Border Cooperation documents - the Bamford Review in the (2011) North and A Vision for Change in the This toolkit - the first of South - in order to identify similarities its kind in Europe - is and differences in policy approach in the particularly timely in two jurisdictions, highlighting areas of light of the European common concern, priorities for research Commission's and the gaps which exist. This work was increasing focus on Territorial carried in association with the Mental Cooperation and Territorial Cohesion. Health Commission (RoI), Cooperation Cross-border impact assessment is and Working Together (CAWT) and other intended to be a practical method to agencies in the mental health field. assist people planning cross-border programmes and projects. This first Exploring the version is based on the Irish cross- Potential for Cross- border experience, but can be adapted Border Hospital to other European border regions. The Services in the Irish toolkit will help to determine whether Border Region: the a cross-border approach is the role of community appropriate level of intervention and, if involvement in so, to identify the 'added value' of cross- planning hospital border cooperation. It will also identify services (2010) the added value that has come about as This study by CCBS Deputy Director a result of the cooperation process itself: Ruth Taillon features feedback from e.g. the building of new cross-border
174 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 relationships. The toolkit was devised partner organisations. These have and developed by a team led by CCBS included: Deputy Director Ruth Taillon along with Dr Joachim Beck and Sebastian Rihm • A study to explore current from the Euro-Institut in Kehl, Germany. governmental and civil society connections between Northern Unlocking the Ireland and the Republic of Potential of Ireland in areas of concern to the Cross-Border Joseph Rowntree Charitable Trust Hospital Planning (December 2011 - May 2012) on the Island of • A scoping study on the potential Unlocking the Potential of Cross-Border Hospital Planning on the Island of Ireland: A Prototype Modelling Framework Ireland: a prototype for 'value for money' North-South Authors: Shane McQuillan & Vanya Sargent Horwath Bastow Charleton modelling public service cooperation for framework (2011) the Department of Foreign Affairs This study, carried (by Michael D'Arcy) (November out by Shane McQuillan and Vanya 2011 - April 2012) Sargent of the Dublin consultancy firm • A third review of the 2008 study Horwath Bastow Charleton, explored of postgraduate flows from the the feasibility of developing cross-border Republic of Ireland to Northern acute healthcare services in a number Ireland for the Irish Department of sectors, and outlined a prototype of Education and Skills modelling framework for planning such (December 2011) services. The five sample clinical service • A study of Obstacles to Cross- areas examined were orthopaedic Border Undergraduate Education surgery, ENT surgery, paediatric cardiac (for the IBEC-CBI Joint Business surgery, cystic fibrosis and acute mental Council and the Eures Cross health care services. The researchers Border Partnership) (August 2011) concluded that there were significant • A study of North-South cooperation barriers to providing such services on in the education sector (pre- a cross-border basis, but these could school, primary, secondary) for the be worked around (particularly at local Department of Education and Skills level, and following the example set by and the Department of Education the Cooperation and Working Together Northern Ireland (June 2010) network), and there were particular • A review of cross-border consumer opportunities presented by the new issues, employment issues and South West Acute Hospital railway links, as reflected in Border in Enniskillen. People queries and user group meetings, for the North/South COMMISSIONED STUDIES AND Ministerial Council Joint Secretariat EVALUATIONS (April 2010) • A study of the numbers of people The Centre has carried out studies crossing the border on a daily/ and evaluations for government and weekly basis and what they are other public agencies and social crossing the border to do (to
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 175 work, study, retire, access medical Centre for Point-of-Care Technology services etc), for the EURES Cross (February 2007). Border Partnership (February 2010) • An overview of the activities of the • A review of the 2008 study of Common Chapter of the Republic of postgraduate flows from the Ireland’s National Development Plan Republic of Ireland to Northern and Northern Ireland’s Structural Ireland for the Irish Department of Funds Plan for the Special EU Education and Science Programmes Body – in partnership (December 2009) with FPM Chartered Accountants • A study of mental health policy and (February 2007) research on the island of Ireland, • A report on public attitudes to the for the Mental Health Commission development of cross-border health (RoI) and other agencies, supported services, with particular reference to by the Cooperation and Working GP out-of-hours services, for CAWT Together (CAWT) cross-border (January 2007) network of health authorities • A report on education and skills (December 2008) in the North West, for the Irish • An evaluation of the cross-border Department of Education and GP out-of-hours service for Science and the Northern Ireland Cooperation and Working Together Department for Employment and (July 2008) Learning (2006) • A study of postgraduate flows from • An Evaluation of the Education for the Republic of Ireland to Northern Reconciliation Project (Year One Ireland higher education institutions, and Two), for the City of Dublin for the Irish Department of Education Vocational Education Committee and Science (January 2008) (2003-2005) • How the trade union movement • A Review of Cross-Border Mobility can become more involved Information Provisions in the South and influential in North-South of Ireland, for the North/South cooperation, for the Northern Ireland Mobility Information Group (2003) office of the Irish Congress of Trade • An Evaluation of the Upstate Unions (December 2007). Theatre Company’s ‘Crossover’ • A review of policy recommendations cross-border community drama from the five research projects project (2002-2004) commissioned by the Higher • ‘Towards a Strategic Economic Education Authority under the 2004- and Business Research Agenda 2006 Cross-Border Programme for for the island of Ireland’, for Research contributing to Peace and InterTradeIreland (2002) Reconciliation: Intergenerational • A report on public feedback to the transmission and ethno-national PriceWaterhouseCoopers/Indecon identity in the border area; Equality Obstacles to Mobility study, for the and social inclusion; Mapping North/South Ministerial Council Frontiers, Plotting Pathways; (2002) E-consultation; and Virtual Research
176 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Pictured at the launch of the IBEC-CBI Joint Business Council/Eures Cross Border Partnership report, A study of Obstacles to Cross-Border Undergraduate Education, August 2011: (from left to right) Hugh Crossey, Chair of the IBEC-CBI Joint Business Council, Paula O'Dwyer (IBEC), Andy Pollak (author), Joe Lavery (EURES Cross Border Partnership).
• A study into the feasibility of the chairmanship of a distinguished extending University for Industry/ authority in the field. As the Centre’s learndirect to the Republic of Ireland, research programme has developed, for University for Industry (2001) these seminars have moved from • An evaluation of the Co-operation studying broad policy fields to examining and Working Together (CAWT) more focused areas which have been cross-border network of health the subject of specific research projects boards and trusts, for CAWT(2001) and commissioned work. Cross-border • A ‘scoping study’ of North-South seminars and study days have been School, Youth and Teacher organised in the following areas: Exchanges, for the Department of Education Northern Ireland and • Agriculture the Department of Education and • Education Science (2001) • Tourism • Information and Communication SEMINARS AND STUDY DAYS • Technologies • Health Services The Centre holds regular seminars and • Mental Health Promotion study days in Armagh, Dublin and in • Developments in Telecom the border region to examine strategic Technologies areas of interest to North-South policy • Local government links makers. These bring together groups • Foot and Mouth disease of policy makers, senior practitioners • School, Youth and Teacher and academics to discuss a research Exchanges paper prepared by the Centre under • European citizenship education
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 177 •o The eur cooperation in Ireland every six months • Business research to discuss a research and/or policy issue • The North-South Consultative Forum of current interest. • Ageing • Border region history* The first meeting was in Dundalk in • Border region regeneration* December 2009 under the title ‘What • Waste Management is the future for local and Cross-Border • Economic co-operation* Economic Development in the context of • Planning and mobility in the the Global Economic Crisis’. The second north-west* forum was also in Dundalk, in June • Science and Citizenship 2010, with the theme ‘Cross-Border • Information provision Innovation and Creativity’.The third • Housing and sustainable forum was held in Belfast in December communities 2010 under the title ‘The Future of • Education and Skills in the North Public Sector Cross-Border Cooperation West in a Difficult Financial Climate’. • Mental Health Research • Personal Banking The fourth forum was in Derry on 23 • Web 2.0 aspects of online cross- June 2011 under the title ‘Peacebuilding border information across Borders’. It was addressed by Dr • Cross-border statistics Kenneth Bushe, INCORE, University of • Cross-border consumer issues Ulster; Amanda Leighton, Communities • Cross-border hospital services and Policing in Transition (CAPT) • Border Region Economy project; Paddy Logue, Irish Peace • Developing your cross-border Centres; and Ruth Taillon, Centre for business (2) Cross Border Studies. • Cross-border impact assessment A fifth forum was held in Belfast on * For the Mapping Frontiers, Plotting 15 December 2011 on the subject of Pathways project ‘Cross-Border Health Cooperation at a time of Austerity’ (to coincide with NORTH/SOUTH RESEARCH FORUM the launch of the report Unlocking the Potential of Cross-Border Hospital There have been five meetings of Planning on the Island of Ireland). It the North/South Research Forum was addressed by Tom Daly, Director (NSRF) to date. This initiative, which General of the Cooperation and is funded by the EU INTERREG IVA Working Together (CAWT) cross-border programme (managed by the Special health network; Dean Sullivan, Director EU Programmes Body) through the of Planning and Performance in the NI Ireland/Northern Ireland Cross-border Department of Health, Social Services Cooperation Observatory (INICCO), and Public Safety; and Dr Jan Rigby, aims to bring together researchers, Centre for Health Geoinformatics, policy-makers and funders interested NUI Maynooth. in North-South and cross-border
178 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 CONFERENCES of Excellence in Third Level Education.’ The first major conference This conference, which organised by the Centre, was attended by the jointly with the Centre presidents of seven of for International Borders the nine universities on Research (CIBR), the island of Ireland, was was held at Queen’s addressed by several University Belfast in world authorities on higher autumn 2000 under the education. These included title ‘European Cross Professor Malcolm Skilbeck, the OECD’s Border Co-operation: former Deputy Director for Education; Lessons for and from former US Secretary of Education, Ireland.’ This international conference Richard Riley; the Director-General for was opened by the Irish President, Education and Culture in the European Mary McAleese, and was addressed Commission, Nikolaus van der Pas, and by a wide range of distinguished the Chief Executive of the English speakers, including the First Minister Higher Education Funding Council, Sir of Northern Ireland, David Trimble; the Howard Newby. Deputy First Minister, Seamus Mallon; the RUC Chief Constable, Sir Ronnie In May 2003, the second Flanagan; the head of the EU’s cross- conference was held in border INTERREG programme, Esben Cavan on ‘International Poulsen; the international emergency Education: A Capacity communications expert, Professor Builder for the Island of Edward Johnson; Ambassador Ireland?’ The keynote Hermann von Richthofen of the German- speakers were Lindy Polish Governmental Commission; Hyam, Chief Executive of and the SDLP leader John Hume. IDP Education Australia, Participants came from 13 countries a world leader in to discuss cross-border co-operation international education and in five areas: administrative institutions, development services, and Neil Kemp, security and policing, business and the director of the Education UK Division of economy, the environment, and culture the British Council. The conference was and the arts. chaired by Sir George Quigley.
The Centre has also organised six In November 2003, North-South conferences on aspects the third conference of higher education on behalf of the was held in Belfast on Department for Employment and ‘Widening Access Learning (Belfast) and the Department to Third Level of Education and Science (Dublin). Education on the The first of these, in October 2002 in Island of Ireland: Armagh, was on ‘Ireland as a Centre Towards Better
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 179 Policy and Practice’. The keynote Lambert Review of University-Business speakers were Dr Arnold Mitchem, Collaboration for the British Government. President of the Council for Opportunity The conference was opened by the Irish in Education in Washington DC, a Minister for Education and Science, champion of access to higher education Ms Mary Hanafin TD, and the Northern for low income and disabled Americans Ireland Minister for Employment and for 35 years, and Samuel Isaacs, Learning and Education, Ms Angela Executive Officer of the South African Smyth MP. Other speakers included the Qualifications Authority. Presidents of Queen’s University Belfast and NUI Maynooth, Professor Peter The fourth conference Gregson and Professor John Hughes, – entitled ‘Cross- and leading Irish entrepreneurs Dr Chris Border Higher Horn and Dr Hugh Cormican. Education Co- operation in Ireland The sixth conference and Europe’ – was was held in Malahide held in Cavan in in March 2006 with May 2004. This the title ‘What role for examined examples Higher Education of good practice in cross-border higher in the Development education elsewhere in Europe, notably of the 21st Century in the Oresund region of Denmark Workplace?’ The and southern Sweden (with keynote keynote speakers speaker Professor Linda Nielsen, Rector were the Board of the University of Copenhagen), and Chairman of the Intel Corporation, Dr the EUCOR network between French, Craig Barrett; the Directors General of German and Swiss universities in the the Confederation of British Industry Upper Rhine region. The conference and the Irish Business and Employers was co-chaired by Sir Kenneth Confederation, Sir Digby Jones and Bloomfield and Noel Dorr. Turlough O’Sullivan; the Education and Training Officer of the Irish Congress The fifth conference of Trade Unions, Peter Rigney; the was held in Belfast Chief Executive of Forfás, Martin in June 2005 Cronin, and the President of Dublin under the title City University, Professor Ferdinand ‘Higher Education von Prondzynski. The conference was and Business: opened by the Secretary General of Beyond Mutual the Irish Department for Education and Incomprehension’. Science, Brigid McManus, and the The keynote speaker Permanent Secretary of the Northern was Richard Lambert, member of the Ireland Department for Employment and Bank of England’s Monetary Policy Learning, Dr Aideen McGinley. The event Committee, former editor of the Financial was organised in collaboration with the Times and author of the seminal IBEC-CBI Joint Business Council.
180 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 In March 2007 the Justice, Dermot Ahern TD, and among Centre joined with the speakers were Stephen Kingon, Armagh Observatory Chairman, Invest Northern Ireland; to organise Martin Guillermo Ramirez, Secretary ‘Discover the General of the Association of European Stars at Armagh: Border Regions; Ronald Hall, Head of a Cross-Border the European Commission’s Northern Schools Science Ireland Task Force; Professor Elizabeth Conference.’ This Meehan, former Director of the Institute brought together 260 students from of Governance at Queen’s University secondary schools in Belfast, Armagh, Belfast; Silvia Gobert-Keckeis of Dublin, Dundalk, Drogheda, Dungannon, Mission Opérationelle Transfrontalière Kilkeel, Cookstown, Fermanagh, (MOT) in Paris); Linda Blom from the Monaghan and Westmeath to engage Euregio Gronau-Enschede (Germany- in two days of astronomical activities Netherlands); and Gorka Espiau Idoiaga, in Armagh. The event was funded by Senior Advisor for Peacebuilding to the the Northern Ireland Department of Basque Government. This conference Culture, Arts and Leisure and the Irish was funded by the EU Peace Department of Education and Science, Two programme. and was designed to attract students aged 13-14 towards science and a In April 2009 and May 2011 the scientific thinking at a critical stage Centre, the Royal School Armagh, the of their academic careers. A 32 page Armagh Observatory and the Armagh booklet, edited by Dr Miruna Popescu, Planetarium came together to organise was produced for the participating a second and third ‘Discover the Stars schools by Observatory students and in Armagh: Cross-Border Schools staff. Science Conference’. These brought together over 500 students from 20 In June 2008 the Centre organised a secondary schools on both sides of major conference in Dundalk entitled the border to learn about astronomy ‘Cross-Border Cooperation as part and related sciences and mathematics, of the Northern using the unique joint facilities of the Irish Peace Observatory and the Planetarium. Process: Some In 2009 the keynote lecture on ‘The Lessons for Science of Armageddon’ was given by Europe’ which was the leading British astronomer, Jay Tate attended by over of Spaceguard UK in Wales. In 2011 the 130 people from 13 keynote speaker was Dr Robert Walsh countries: Ireland, of the University of Central Lancashire England, Scotland, on ‘Basking in the Sunshine: a new France, Spain, Germany, Belgium, encounter with our closest star.’ Netherlands, Italy, Serbia, Kosovo, China and the USA. The conference On 27-28 October 2011 the Centre was opened by the Irish Minister for organised an international conference
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 181 Students from schools on both sides of the border at the third 'Discover the Stars' Schools Science Conference in Armagh on 5 - 6 May 2011.
Cross-Border Training and Impact Assessment in Ireland and Europe: in the Radisson Blu the Irish border region and Scotland; An International Conference Radisson Blu Farnham Estate Hotel, Cavan 27th-28th October 2011 Farnham Estate Hotel training and evaluation for EU Territorial in Cavan under the Cooperation programmes; cross-border title Cross-Border local authority training in Ireland; higher Training and education and research cooperation in Impact Assessment the Upper Rhine; the Transfrontier Euro- in Ireland and Institut Network (TEIN); and Opening speaker: Lucinda Creighton TD, Irish Minister of State for European Affairs. Europe (funded cross-border training and impact by INTERREG IVA assessment from the standpoints of the though the Special EU Programmes European Commission, the Association Body). It was was attended by 130 of European Border Regions, and people from France, Germany, Poland, France’s leading authority on cross- Czech Republic, Austria, Slovenia, border cooperation, Professor Italy, Catalonia (Spain), USA, Scotland, Michel Casteights. Wales, Northern Ireland and Ireland. The highlight was the launch of the Impact On 17-18 November 2011 the Centre Assessment Toolkit for Cross Border organised a conference in Cavan Cooperation – developed jointly by the under the title Reviving the Border Centre and the Euro-Institut in Kehl, Region Economy in a time of Germany – by Dr José Antonio Ruiz de Peace, Devolved Government and Casas of the European Commission’s International Recession. This was Regional Policy directorate (DG REGIO). the ‘emerging findings’ conference of There were also presentations on health the INTERREG-funded Border Region training, business monitoring and raising Economy research project led by Dr the public participation of women in
182 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Speakers at the Cross-Border Training and Impact Assessment in Ireland and Europe conference: (from left to right) Martin Guillermo Ramirez, Association of European Border Regions; Dr Joachim Beck, Euro Institut; Ruth Taillon, Centre for Cross Border Studies; Dr José Antonio Ruiz de Casas, DG REGIO, European Commission; Helen Johnston, Centre for Cross Border Studies; Sebastian Rihm, Euro-Institut.
John Bradley and region entrepreneurs, Walter Watson
Antrim Professor Michael of Walter Watson Ltd, Paul Shortt of Derry
Donegal
Tyrone Best, and was Castlecool and Pat McAdam of Bose.
Down Fermanagh Armagh
Sligo Monaghan attended by 125 In his closing address Mr White called Leitrim
Cavan Louth people. Among the for setting up of a special development
Reviving the Border Region Economy in a speakers and session zone for the Irish border region. time of Peace, Devolved Government and International Recession An ‘emerging findings’ conference from the research project by Dr John Bradley and Professor Michael Best chairs were Aidan
Radisson Blu Farnham Estate Hotel, Cavan 17th-18th November 2011 Gough, Director of THE TRANSFRONTIER EURO- Policy and Strategy INSTITUTE NETWORK (TEIN) with InterTradeIreland; Dr Gerhard Untiedt from the German Since 2010 the Centre has been a consultancy firm GEFRA; John member of the Transfrontier Euro- Watt from the Highlands and Island Institut Network (TEIN). This is a EU Enterprise agency in Scotland; Dr Edgar Leonardo programme-funded network Morgenroth from the Economic and consisting of the following cross-border Social Research Institute, Dublin; Liam research and training institutes and Connellan, former Director General centres, and university departments of of the Confederation of Irish Industry; cross-border studies: Padraic White, chair of Louth Economic • Euro-Institute, Kehl (Upper Rhine Forum and former managing director of region: German-French-Swiss IDA Ireland; and three successful border borders)(lead partner)
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 183 North South Ministerial Council Joint Secretary, Mary Bunting, and Mayor of Armagh, Councillor Freda Donnelly (DUP), with TEIN delegates from border regions in 12 EU countries at the Armagh Council Offices, 26 October 2011.
• Carinthian University of Applied The TEIN network has organised five Sciences, Villach; University of meetings since October 2010 Ljubljana, Faculty of Administration; – in Kehl, Germany; Villach, Austria; ForSer (Austrian-Slovene- Trinec, Czech Republic; Armagh, Italian borders) Northern Ireland, and Banyuls, • Institut Euroschola; Olza Association French Catalonia – to explore ways of (Czech-Polish border) developing tools, methods and skills • Euro-Institut Caraibéen for cross-border training in Europe; to (Caribbean space) provide the EU with a trans-European • Catalan Euro-Institute for Cross- network of cross-border training centres, Border Cooperation (Catalonia); and to develop locally relevant training • Université de Pau et des Pays de networks in specific fields such as public l’Adour (South west France) administration. • Université de Nice, Région Provence Alpes Côte d’Azur TEIN speakers have addressed (French-Italian border) conferences in Ireland, France, • Institut Européen pour la Germany, Belgium and Austria, and Coopération Territoriale (French- the network has compiled a pilot Belgian border) database of 3,000 scholarly articles • University of Southern Denmark, on cross-border cooperation in Department of Border Region Europe. Along with the Association of Studies (Danish-German border) European Border Regions and Mission • Centre for Cross Border Studies Opérationelle Transfrontalière (MOT – (Northern Irish-Irish border) the French Government’s cross-border
184 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 cooperation agency), it is planning a major symposium in Brussels on 10 July 2012 on capacity-building and impact assessment in cross-border cooperation in Europe, to be addressed by EU Regional Policy Commissioner Johannes Hahn.
A funding application was submitted to the EU Leonardo (Transfer of Innovation) programme in February 2012 to transfer and adapt a training tool for intercultural cross-border project management and the moderation of cross-border meetings – first developed in the Upper Rhine region – to other European Anne Thevenet, TEIN coordinator and Deputy border regions. Director, Euro-Institut • Towards a Culture of Human BOOKS Rights in Ireland by Ivana Bacik and Stephen Livingstone, with a In 2001 the Centre foreword by Mary Robinson published, in association with Cork WHAT THEY SAY University Press, a series of short books I think the Centre plays an important containing essays by role, in that it provides quality reports leading writers on key for people to study. Politicians as a issues of interest to rule don’t absorb reports like that on a both Irish jurisdictions: regular basis, but I think it is important to have people who can tell them: ‘Here • Multi-Culturalism: is a really valuable report, here are the View from the the essential items out of it - bear this Two Irelands by in mind when you are talking to your Edna Longley and counterparts from other locations about Declan Kiberd, the mutual benefits for the communities with a foreword on both sides of the border’. So it is an by President Mary important entity, it does important work. McAleese I have read a number of its reports over • Can the Celtic the years and I value them greatly. Tiger cross the Irish Border? by John Bradley and The Taoiseach, Enda Kenny TD, Esmond Birnie, with a foreword by January 2012 Peter Sutherland
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 185 I really enjoyed my visit to Armagh and As both a cooperation partner and an meeting with you and your colleagues expert on impact assessment I can only in the Centre for Cross Border Studies. say that the Centre for Cross Border Please keep in touch. I would be happy Studies meets very high professional to visit again and get a detailed briefing and quality standards, both in terms on other aspects of the Centre’s work. of the content and the methodology of its work (as well as in its human Ruairi Quinn TD, Minister for Education relationships). The Centre’s concern and Skills, January 2012 to create something of real value for cross-border actors with its Impact We welcome the Centre for Cross Assessment Toolkit is reflected in the Border Studies’ ongoing role in high acceptance of the toolkit by target researching, developing and promoting groups. I would also say that within the cross-border cooperation. The TEIN network, the Centre contributes continuing development of the website very pro-actively and is a most reliable www.borderpeople.info, which the and active partner. My final evaluation Centre operates in partnership with the comment is that working with the Centre NSMC Joint Secretariat, is particularly is a real partnership at the highest pleasing. Border People has proven to possible level: the Impact Assessment be an invaluable resource for people Toolkit for Cross-Border Cooperation who wish to move across the border in was a top project with a top partner – it either direction to work, study and live. would be hard to find a better one in Europe. The Centre has also continued to provide valuable assistance to the Dr Joachim Beck, Director, NSMC Joint Secretariat in its work on Euro-Institute, Kehl, Germany, identifying new and emerging cross- December 2011 border mobility issues. It organised two well attended focus group discussions The Centre for Cross Border Studies’ with key stakeholders on cross-border team deserve our thanks and business development, including congratulations for the tremendous problems encountered by businesses work they have been doing. It is work operating across the border. In 2012 that has also paid dividends in terms the focus will shift to examining how of research projects done and people the provision of advice on cross-border brought together from North and matters might be mainstreamed into South in conferences, seminars and relevant front line services. We look training courses. People have to be forward to continuing our cooperation inter-connected, whether it is within with the Centre in 2012 and wish Andy the North, between North and South, Pollak and his team every success with or between East and West. That is their work. how we will all learn from each other. The Centre is leading that North-South North South Ministerial Council Joint inter-connection process. It is therefore Secretaries, Mary Bunting and Margaret an honour and a pleasure to be here Stanley (Acting), January 2012 with you this morning to launch the
186 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 2011 Journal of Cross Border Studies initiative begun and sustained at times in Ireland. of considerable political uncertainty. The extremely high quality of the Centre’s Martin McGuinness MP MLA, NI Deputy research and analysis is understood First Minister, March 2011 and respected now by decision-makers throughout the island, as well as by I applaud the Director, Andy Pollak, and academics and practitioners further his team on a tremendous record of afield. The Journal we are launching achievement over well nigh 12 years. today can only add, once again, to Pages 112-173 of this year’s Journal, that fine reputation. This new edition is on the Centre’s work, show just how packed tight with informative opinion far-reaching and significant is its range and insightful comment and will provide and how it touches on areas so relevant much food for thought for policy-makers to the quality of our future on the and commentators North and South island. I saw this at first hand through over the period ahead. my involvement for several years in a highly innovative programme it ran for Fianna Fail leader (then Minister for the training of personnel engaged in Foreign Affairs), Micheál Martin TD, cross-border policy or operations. The April 2010 Centre’s Journal typifies the quality of excellence which the Centre brings to I want to thank the Centre for Cross all that it does. Beautifully produced, Border Studies and Andy Pollak for a pleasure just to handle but, most all their work in helping to bring about important of all, a treasure chest of greater cross-border understanding in a highly readable articles written to the number of key areas. highest professional standards. Start any of these articles and you will Rt Hon Jeffrey Donaldson MP MLA, become hooked. And not just hooked, June 2009 but challenged, because these articles irresistibly prompt the response: What The Centre for Cross Border Studies and must be done about this? its researchers are to be congratulated on their terrific record of achievement Sir George Quigley, Chairman, over the past 10 years. They have been Bombardier Aerospace, Belfast, at the forefront of policy research and March 2011 development on a cross-border basis at a time of very significant change on I was delighted to attend the opening the island, providing leadership and of the Centre for Cross Border Studies energy and dynamism in this key area. in Armagh as Minister for Education in They have added to the knowledge November 1999, and I have watched base and brought together policy- with admiration as the Centre has makers, academics and researchers gone from strength to strength over to seek practical solutions to issues of more than a decade since. This has real relevance to people in Northern been a courageous and pioneering Ireland and the Republic of Ireland. One
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 187 example of this kind of relevant work, EVALUATION QUOTES undertaken in close collaboration with the North South Ministerial Council, is An evaluation of the work of the the development of the Border People INICCO ‘basket’ of EU INTERREG mobility information website. The cross- funded projects was carried out in border mobility issues on which this 2009-2012 by Indecon Economic website provides information are a key Consultants of Dublin. As part of priority for Ministers on both sides of this evaluation they sought the views the border. of ‘high-level stakeholders’ with an interest in cross-border cooperation in I warmly and openly pay tribute to the Ireland. Indecon said these views were Centre's work. Without their energy ‘consistent with our own evaluation and enthusiasm, the kind of practical of the programmes and the quantified cross-border cooperation issues now evidence on activities.’ considered part of the mainstream certainly wouldn't be considered as Their perceptions of the Centre’s self-evidently important as they now are. achievements through the INICCO When the Centre set out on its journey projects were as follows: 10 years ago they were not considered self-evident at all. I particularly commend 1. ‘Overall, the stakeholders the new series of INTERREG-funded consulted – which include senior research projects on the border region public servants and private sector economy, cross-border spatial planning, personnel from both sides of the health, impact assessment and mobility border – have a high regard for the information which they are currently Centre and its work. The perceived embarking on. strengths of the Centre are its knowledge and networks in respect Head of the Northern Ireland Civil of the Irish cross-border region. Service, Sir Bruce Robinson, The Centre is seen as a small and March 2009 flexible organisation, which “punches above its weight” in terms of its The Centre for Cross Border Studies activities and reach, nationally and always takes a very fresh and innovative internationally. approach, bringing together sources of 2. The Centre cannot, however, be energy on both sides of the border that expected to be expert in all fields; used to be back to back but are now in it exists on a modest budget and an extraordinary dialogue. expectations of its applied research output must take account of the President Mary McAleese, fact that it does not have the February 2005 research resources which exist in university faculties or in larger research institutes. Nevertheless, through its networks on the island and internationally, it has been able
188 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Participants from 13 countries at the Cross-Border Training and Impact Assessment in Ireland and Europe Conference in Cavan, October 2011. to take the lead on a number of cooperation on the island projects addressing identified gaps of Ireland in areas such as in areas of the cross-border agenda. education, training, health, 3. The importance of the Centre’s work ICT, the economy, citizens’ on training and the development information and a range of other of individuals to help upskill them practical areas. and disseminate good practices 4. The contribution of the Centre and in a cross-border context was INICCO to areas such as regional highlighted by various stakeholders. development was also raised by In particular, a number of people senior stakeholders. For example, consulted referred to the impact of in our consultations Martin Fraser, the Centre’s research and practical Secretary General of the Department support for cooperation. An example of the Taoiseach, indicated his belief of senior policy makers views on the that the Centre for Cross Border Centre was indicated in the speech Studies is engaged in valuable work by Mary Bunting, NI Joint Secretary in a challenging context. of the NSMC, to the Transfrontier Mr Fraser gave the example of Euro-Institut Network (TEIN) the opportunities identified in their delegates on 27 October 2011, work on health and on regional where she noted that: development and indicated that The Centre makes an excellent these initiatives were very well contribution to research and conceived.
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 189 5. There were a range of other business-oriented approach to its positive views from senior user group meetings in 2011, which stakeholders consulted. Sir George have been positively received by the Quigley, Chairman of Bombardier attendees. Indecon also believes Aerospace, said: that the provision of research I have seen them at close and insights such as provided by quarters in various contexts and INICCO may inevitably be of greater have formed a very positive view benefit to policy-makers and we of their relevance, competence believe this is consistent with its and effectiveness. original rationale. It should also be Positive views were also expressed noted that INICCO is funded under by a private sector representative the public sector collaboration organisation. Reg McCabe, Chief theme of the INTERREG IVA Executive of the IBEC-CBI Joint programme. Business Council, said he had ‘a 2. One issue noted by a number of very positive view of CCBS and its stakeholders is that the Centre and work and IBEC have developed a INICCO are not implementation close relationship with the Centre agencies and that implementation over time’. of various initiatives, in practice, is 6. The Centre’s work programme often a difficult challenge. One of the through INICCO was seen as having positives of INICCO is that it entails relevance for the private sector as work by the Centre in collaboration well as the public sector. However, with other cross-border/island of some views were expressed Ireland organisations, with steering/ suggesting placing greater emphasis advisory groups who can help to on supporting the private sector in implement cross-border initiatives. any future programmes.’ However, ultimately, implementation is a matter for policy makers. The Indecon evaluators also highlighted This suggests there is a continual a number of future challenges for the challenge for the Centre to maintain Centre, as well as future research its advocacy of cross-border opportunities: collaboration with central and local government and with 1. ‘There is a perception by some implementation agencies. stakeholders that the Centre is 3. During the consultations one primarily focused on the public stakeholder raised the issue of sector, and this raises the issue the level of engagement by the of whether more could be done universities who were the founder to enhance collaboration with members of the Centre. While the private sector organisations and/ Centre and its island of Ireland or provide research that could meet partner organisations have formed identified needs of the private sector. useful relationships with universities It is accepted, however, that the during the course of INICCO, the Border People project has taken a challenge remains of developing
190 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 Pictured after the Ulster semi-final of the all-island Debating Science Issues schools competition. Back row (left to right): Ian Campbell (science teacher), Paul Courtney, and Chris Brown, Belfast High School; Katy Whan, Helen Macauley and Sarah Tully (science teacher), Banbridge Academy. Front row (left to right): Canon Gregory Dunstan, Dean of Armagh; Dr Anna Gavin, Queen’s University Belfast; Dr John Butler, Armagh Observatory; Andy Pollak, Centre for Cross Border Studies.
significant cross-border research 4. A small number of stakeholders programmes within universities. raised the possibility that the Centre An effective way forward may be might be more active in the provision to intensify these links (between of quantitative analysis. However, universities North and South and we believe this is not a specialist between universities and the Centre) area of the Centre and, given the on a project-by-project basis. The challenging funding outlook for Centre manages the all-island the Centre, we believe that the university network Universities best way of accommodating more Ireland and its North/South quantitative-based research by the scholarships scheme, and other Centre might be through its links initiatives such as cooperation with with other organisations. African universities. None of these 5. Important for future policy is the fact are funded by INTERREG. However that in the course of developing its the Centre's close association, projects, the Centre has assembled through ICLRD, with NUI Maynooth extensive relevant data about and University of Ulster, has served the differing situations in both to strengthen INICCO's university jurisdictions across a number of connections. sectors. It was suggested that
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 191 a worthwhile exercise might be to assemble and further develop this data so it is easily accessible and provides a useful resource for planners and policy makers, including on the patterns of deprivation in border areas. ICLRD has developed an innovative all- island Deprivation Index with the All-Island Research Observatory. Indecon believes that maintaining and developing the important data and evidence assembled by the Centre and ICLRD is key to maximising the legacy benefits of INICCO.'
192 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 BOARD MEMBERS AND STAFF
Helen Johnston (chair), Senior Social Policy Analyst, National Economic and Social Council, Dublin, and former director, Combat Poverty Agency Helen Johnston
Dr Pauric Travers (vice-chair), President, St Patrick’s College, Drumcondra, Dublin
Dr Jane Wilde, Former Director, the Institute of Public Health in Ireland
Professor Liam O’Dowd, Director of the Centre for Pauric Travers International Borders Research and Professor of Sociology at Queen’s University Belfast
Colin Neilands, Director, Workers’ Educational Association (Northern Ireland)
Tony Kennedy, former Chief Executive, Co-operation Mairead Hughes Ireland, and member, Northern Ireland Community Relations Council
Colin Stutt, independent economic consultant, Belfast
Ann McGeeney, independent consultant, South Down, and former Director, Cross-Border Centre for Community Development, Dundalk Institute of Technology Ruth Taillon
Professor Ronaldo Munck, Strategic Theme Leader for internationalisation, interculturalism and social development, Dublin City University
[two vacancies]
Andy Pollak
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 193 The Director of the Centre is Andy Pollak, formerly religion and education correspondent and Belfast reporter with The Irish Times, and in the early 1990s coordinator of the Opsahl Commission.
The Centre’s Deputy Director (research) is Ruth Taillon, formerly research coordinator with Border Action (partnership of Combat Poverty Agency and Pobal). Its Deputy Director (finance and administration) isMairead Hughes. Its IT Manager is Joseph Shiels, a former software developer with Fujitsu and consultant with PricewaterhouseCoopers.
The Director’s PA and events manager is Patricia McAllister. The INICCO Project Administrator is Eimear Donnelly. The Information Officer isAnnmarie O’Kane.
Patricia McAllister Joseph Shiels Eimear Donnelly Annmarie O’Kane
194 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 EXTRACTS FROM 2010-2011 FINANCIAL STATEMENTS
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 2011 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.
STATEMENT OF FINANCIAL ACTIVITIES FOR THE YEAR ENDED 31 JULY 2011
Unrestricted Restricted Total Total Funds Funds Funds Funds 2011 2010 £ £ £ £
Incoming resources Activities for generating funds - 862,764 862,764 818,321 Other income 438,043 - 438,043 326,491
Total incoming resources 438,043 862,764 1,300,807 1,144,812
Resources expended Direct charitable expenditure 331,535 786,655 1,118,190 985,960 Costs of generating funds 7,664 305 7,969 8,369
Governance Costs 3,650 - 3,650 3,995 Total resources expended 342,849 786,960 1,129,809 998,324 Net movement in funds 95,194 75,804 170,998 146,488 Fund balance carried forward at 183,108 505,282 688,390 541,902 August 2010
Fund balance carried forward at 278,302 581,086 859,388 688,390 31 July 2011
JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 195 All amounts above relate to continuing operations of the company.
The company has no recognised gains and losses other than those included in the results above and therefore no separate statement of total recognised gains and losses has been presented.
There is no difference between the net movement in funds for the period stated above and its historical cost equivalent.
BALANCE SHEET AS AT 31 JULY 2011
2011 2010 £ £
Current assets Debtors 1,237,058 938,486 Cash at bank 4,001 1,855
1,241,059 940,341 Creditors: amounts falling due within one year (381,671) (251,951)
Net current assets 859,388 688,390
Funds Unrestricted 278,302 183,108 Restricted 581,086 505,282
Total funds 859,388 688,390
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 and awards for specific projects or administrative functions carried out by the company.
196 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7 CONTACT DETAILS
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] Ruth Taillon [email protected] Joseph Shiels [email protected] Patricia McAllister [email protected] Eimear Donnelly [email protected] Annmarie O’Kane
Websites: www.crossborder.ie www.borderireland.info www.borderpeople.info www.universitiesireland.ie http://scotens.org
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Ashley Bingham Senior Designer Leslie Stannage Design Arbor Building 71-75 Donegall Pass Belfast BT7 1NR
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200 JOURNAL OF CROSS BORDER STUDIES IN IRELAND No.7