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Devolution Monitoring Programme 2006-08 DEVOLUTION MONITORING PROGRAMME 2006-08 Northern Ireland Devolution Monitoring Report January 2007 Professor Rick Wilford & Robin Wilson Queen’s University Belfast (eds.) ISSN 1751-3871 The Devolution Monitoring Programme From 1999 to 2005 the Constitution Unit at University College London managed a major research project monitoring devolution across the UK through a network of research teams. 103 reports were produced during this project, which was funded by the Economic and Social Research Council (grant number L 219 252 016) and the Leverhulme Nations and Regions Programme. Now, with further funding from the Economic and social research council and support from several government departments, the monitoring programme is continuing for a further three years from 2006 until the end of 2008. Three times per year, the research network produces detailed reports covering developments in devolution in five areas: Scotland, Wales, Northern Ireland, the Englsh Regions, and Devolution and the Centre. The overall monitoring project is managed by Professor Robert Hazell and Akash Paun at the Constitution Unit, UCL and the team leaders are as follows: Scotland: Peter Jones Honorary Senior Research Fellow, The Constitution Unit, UCL Former political correspondent for The Economist Wales: Dr Richard Wyn Jones & Dr Roger Scully Institute of Welsh Politics, University of Wales, Aberystwyth Northern Ireland: Professor Rick Wilford & Robin Wilson Queen’s University, Belfast English Regions: Martin Burch & James Rees, IPEG, University of Manchester Alan Harding, SURF, University of Salford The Centre: Professor Robert Hazell, The Constitution Unit, UCL Akash Paun, The Constitution Unit, UCL The Constitution Unit and the rest of the research network is grateful to all the funders of the devolution monitoring programme. Scottish Executive All devolution monitoring reports are published at: www.ucl.ac.uk/constitution- unit/research/devolution. Contact Akash Paun on [email protected] for further information. Northern Ireland Devolution Monitoring Report January 2007 Rick Wilford & Robin Wilson (eds.) Northern Ireland Devolution Monitoring Report January 2007 Executive Summary .....................................................................................................6 1. The ‘Peace Process’ ........................................................................................9 1.1 The last-chance saloon ................................................................................9 1.2 St Andrews agreement...............................................................................21 2. ‘Devolved’ Government ..................................................................................28 2.1 Hain in hot water ........................................................................................28 2.2 More PAC pressure....................................................................................30 3. The Assembly.................................................................................................31 3.1 ‘Hain’ assembly ..........................................................................................31 3.2 Programme for Government Committee ....................................................32 3.3 Plenaries ....................................................................................................34 4. The Media ......................................................................................................36 5. Public Attitudes and Identity ...........................................................................38 6. Intergovernmental Relations ..........................................................................41 6.1 ‘East-west’ ..................................................................................................41 6.2 North-south.................................................................................................45 7. Relations with the EU .....................................................................................47 8. Relations with Local Government...................................................................49 9. Finance...........................................................................................................50 9.1 Empty package...........................................................................................50 9.2 Water charges ............................................................................................53 10. Political Parties and Elections ........................................................................54 10.1 Introduction.................................................................................................54 10.2 St Andrews .................................................................................................54 10.3 Conclusion..................................................................................................60 11. Public Policies ................................................................................................61 11.1 Education ...................................................................................................61 11.2 Social inclusion...........................................................................................64 11.3 Health and environment .............................................................................65 Bibliography ...............................................................................................................66 Official Documents .................................................................................................66 Secondary Literature ..............................................................................................66 4 Northern Ireland Devolution Monitoring Report January 2007 List of Figures Figure 1: ‘The Assembly at Stormont has been suspended for some time. Do you think that Northern Ireland has been better or worse off without devolution?’ (%) 38 Figure 2: ‘If no deal is done by November 24th, what do you think should happen next?’ (%) 39 Figure 3: ‘Do you think that Ian Paisley and Martin McGuinness will be installed as shadow first minister and deputy first minister, respectively, by 24th November?’ (%) 39 Figure 4: ‘Do you believe that the Northern Ireland Assembly will be fully operational by 26th March 2007?’ (%) 40 Acronyms BIC British-Irish Council BIIC British-Irish Intergovernmental Conference BIIPB British-Irish Inter-Parliamentary Body DUP Democratic Unionist Party IMC Independent Monitoring Commission MLA Member of the Legislative Assembly NICVA Northern Ireland Council for Voluntary Action NIO Northern Ireland Office OFMDFM Office of the First Minister and Deputy First Minister PSNI Police Service of Northern Ireland PUP Progressive Unionist Party RPA Review of Public Administration SDLP Social Democratic and Labour Party SF Sinn Féin UDA Ulster Defence Association UUP Ulster Unionist Party UVF Ulster Volunteer Force 5 Northern Ireland Devolution Monitoring Report January 2007 Executive Summary As what had been affirmed by London and Dublin last spring as the final, final deadline for restoration of the Northern Ireland devolved institutions, 24 November, loomed, the parties were yet again assembled at a country retreat—this time St Andrews—in October. A deal was only secured after a raft of concessions to the Democratic Unionist Party by the prime minister, fearful of the next day’s headlines, following the threat of a DUP walkout. The backdrop proclaiming the ‘St Andrews agreement’ had been pre-prepared, and it was apparent that this was – just like the ‘comprehensive agreement’ of December 2004 – an accord to which only London and Dublin had signed up. In particular, there was no agreement by SF at that stage to hold the special ard fheis (conference) required for the bouleversement of supporting the Police Service of Northern Ireland, successor to the Royal Ulster Constabulary, essential for any participation in renewed power-sharing. While republicans reported ‘considerable’ hostility to any such move, DUP figures said they couldn’t envisage the devolution of policing and justice – which SF treated as a precondition of movement – in their ‘political lifetimes’. The government blinked first once more, with the Northern Ireland (St Andrews Agreement) Bill now allowing of a ‘transitional’ assembly after 24 November, to be dissolved on 30 January for an election on 7 March, with yet another devolution deadline of 26 March. And, during the debate on the bill, the Northern Ireland secretary, Peter Hain, said that the DUP and SF would now have only to ‘indicate’ their candidates for first and deputy first minister – rather than making formal nominations – on 24 November, to save the DUP’s blushes, and that when SF called the ard fheis on policing was a matter for that party. On the fateful day, the SF leader, Gerry Adams, nominated Mr McGuinness as DFM, but the DUP leader, Rev Ian Paisley, insisted he could not yet nominate himself as FM, invoking Martin Luther as he declared ‘here I stand’. Bizarrely, this was interpreted by the assembly speaker, Eileen Bell, as a positive ‘indication’, though 12 DUP MLAs later explicitly rejected her interpretation. It was, commented the Irish Times, ‘Alice in Wonderland politics’. 6 Northern Ireland Devolution Monitoring Report January 2007 Meantime, just as it seemed matters could not become more surreal, the assembly was suddenly adjourned after an assault on Parliament Buildings by
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