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Provided by the Author(S) and University College Dublin Library in Accordance with Publisher Policies Provided by the author(s) and University College Dublin Library in accordance with publisher policies. Please cite the published version when available. Title The significance of the cross-border dimension for promoting peace and reconciliation Authors(s) O'Dowd, Liam; McCall, Cathal Publication date 2006 Conference details þÿPaper presented at the workshop on The Irish border in perspective as part of the Mapping frontiers, plotting pathways: routes to North-South cooperation in a divided island þÿprogramme, Queen s University, Belfast, 1 October 2004 Series IBIS Working Papers; 55; MFPP Working Papers; 5 Publisher University College Dublin. Institute for British-Irish Studies Link to online version http://www.ucd.ie/ibis/filestore/wp2006/55/55_lodcmc.pdf Item record/more information http://hdl.handle.net/10197/2210 Downloaded 2021-09-27T14:35:19Z The UCD community has made this article openly available. Please share how this access benefits you. Your story matters! (@ucd_oa) © Some rights reserved. For more information, please see the item record link above. THE SIGNIFICANCE OF THE CROSS- BORDER DIMENSION FOR PROMOTING PEACE AND RECONCILIATION Liam O’Dowd and Cathal McCall IBIS working paper no. 55 THE SIGNIFICANCE OF THE CROSS-BORDER DIMENSION FOR PROMOTING PEACE AND RECONCILIATION Liam O’Dowd and Cathal McCall Working Papers in British-Irish Studies No. 55, 2006 (also printed as MFPP working paper no. 5) Institute for British-Irish Studies University College Dublin IBIS Working Papers No. 55, 2006 (also printed as MFPP working paper no. 5) © the authors, 2006 ISSN 1649-0304 ABSTRACT THE SIGNIFICANCE OF THE CROSS-BORDER DIMENSION FOR PROMOTING PEACE AND RECONCILIATION This paper focuses on the significance of the cross-border dimension in promoting peace and reconciliation. Its central argument is that cross-border co-operation can help undermine the territorial “caging” which has been so central to the conflict in Northern Ireland. The paper begins by making the case that borders and border change are integral to conflict and its resolution. Secondly, it traces how the recent re-configuration of cross-border relations has challenged the architecture of “con- tainment” which has both limited and intensified communal conflict in Ireland. Thirdly, it reports on some empirical research into the cross-border co-operation promoted by voluntary sector organisations funded under Peace II. Finally, it draws some tentative conclusions about the importance of transnational cross-border co- operation across the external and internal borders in undermining the territorialist zero-sum conflict which has long characterised Northern Ireland and which now as- sumes its most visible and antagonistic form at the interfaces bordering the two communities within the province. Publication information Paper presented at the workshop on “The Irish border in perspective” as part of the Mapping frontiers, plotting pathways: routes to North-South cooperation in a divided island programme, Queen’s University, Belfast, 1 October 2004. The programme is funded by the Special EU Programmes Body through the Higher Education Authority over the period 2004-06. BIOGRAPHICAL INFORMATION Liam O’Dowd is Professor of Sociology and Director of the Centre for International Borders Research (CIBR) at Queen’s University, Belfast. Recent publications in- clude Culture and cooperation in Europe’s borderlands [European Studies, 19] (Ro- dopi, 2003); New borders for a changing Europe: cross-border co-operation and governance (Frank Cass, 2003), both co-edited with James Anderson and Tom Wilson, and “The changing significance of European borders”, Regional and federal studies 12 (4) 2002, pp. 13-36. Cathal McCall is Lecturer in European Studies at Queen’s University, Belfast. Re- cent publications include Identity in Northern Ireland: communities, politics and change (Palgrave, 2001), and “Shifting thresholds, contested meanings: govern- ance, cross-border co-operation and the Ulster unionist identity”, European studies: a journal of European culture , history and politics 19, 2003, pp. 81-103. THE SIGNIFICANCE OF THE CROSS-BORDER DIMENSION FOR PROMOTING PEACE AND RECONCILIATION Liam O’Dowd and Cathal McCall INTRODUCTION The cross-border dimension has come to be accepted by all sides as part of the framework for resolving the Northern Ireland conflict. In its previous incarnation as the “Irish dimension” it goes back to earlier initiatives in this area. Since the early 1990s at the level of high politics it has become identified with Strand 2 in the peace process and the Good Friday Agreement. From the Anglo-Irish Agreement (1985), it has been strongly supported by the US and the EC/EU. 1 The emphasis has been on promoting cross-border economic cooperation of mutual benefit to the peoples on the island, but also as a potential driver of peace-building and reconciliation. The EU Commission, in conjunction with the British and Irish governments, has gone further by initiating the Peace 1 and Peace II programmes to underpin the paramili- tary ceasefires and the Good Friday Agreement respectively. This has taken the form of multi-level partnerships involving the Commission, government departments on either side of the border, voluntary sector agencies and grassroots community groups in a process designed to build bridges between the two communities in the North and between both and communities in the border counties of the Republic. 2 The Peace programmes have been heavily criticised by participants, sometimes on grounds of sectarian imbalance, more often on the basis of their funding priorities, excessive bureaucracy and effectiveness. Yet, few of those involved question their net benefit. For example, the voluntary sector, all the political parties in Northern Ire- land and the government in the Republic favour a Peace 3 programme. This paper focuses directly on the significance of the cross-border dimension in promoting peace and reconciliation. Its central argument is that cross-border coop- eration can help undermine the territorial “caging” which has been so central to the conflict in Northern Ireland. As such the paper is primarily concerned with the state border while also raising the question of links between it and the internal borders which separate Catholics and Protestants within Northern Ireland. It suggests that the contribution of cross-border cooperation to conflict resolution must not be seen 1 The impact of the EU on promoting cross-border cooperation has received more attention than that of the USA (See for example recent work of Hayward, 2004 and the EU border conflicts research programme). The USA has relied more on supporting private business through the International Fund for Ireland. Comparative studies of EU and US promotion of cross border cooperation suggest that heavy involved of state institutions at all levels characterises European efforts while US sponsored cross-border cooperation (as in across the US-Mexican border for example) is focused on private sector initiatives (Blatter, 2004). 2 The specific raison d’etre of the Peace II programme that has funded the “Mapping Frontiers” project of which this paper forms a part includes “addressing the legacy of the conflict” and “taking opportunities arising from the peace”. Like Peace 1, Peace II has allocated 15% of its total budget to promoting cross-border co- operation. IBIS WORKING PAPER NO. 55 IBIS WORKING PAPERS NO. 55, 2006 in isolation from the building of bridges between both communities in the North. The thrust of the peace process has been to separate two sets of issues, the first to do with North-South (i.e. cross-border) relations, the second to do with cross- communal relationships within Northern Ireland. This separation can be justified pragmatically on a political level and is a major part of the architecture of the peace process and the Good Friday Agreement. This paper argues, however, that the rela- tionship between cooperation across the external and internal borders of Northern Ireland needs to be explored and developed as it is critical to furthering peace and reconciliation. The paper begins by making the case that borders and border change are integral to the conflict and to its resolution. Secondly, it traces how the recent re- configuration of cross-border relations has challenged the architecture of contain- ment which has both limited and intensified communal conflict in Ireland. Thirdly, it reports on some empirical research into transnational cross-border cooperation car- ried out by the voluntary sector and funded under Peace II. Finally, it draws some tentative conclusions about the importance of transnational cross-border coopera- tion in undermining the territorialist zero-sum conflict which has long characterised Northern Ireland and which now assumes its most visible and antagonistic form at the interfaces bordering the two communities within Northern Ireland. STATE BORDERS, BORDER CHANGE AND CONFLICT RESOLUTION A growing international and interdisciplinary literature on borders and border change helps illuminate the connection between state borders, border change and conflict resolution. 3 Ironically, the stimulus for this new interest in borders has been the challenge posed by new forms of economic, political and cultural globalization to ex- isting territorial borders. “Strong” theories of an increasingly “borderless” world have been confronted by the empirical recognition that borders are not so much disap- pearing as being reconfigured in new ways
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