Northern Ireland: Topic 6 - Requirements for a balanced agreement

The Belfast Agreement is a complicated and in some ways confusing document. Nonetheless it is a very interesting attempt to reach a balance between the interests and aspirations of the different parties and groups involved because none was in a position to impose its preferred solution on the others. Nesbitt in his assessment of the contents of the Agreement states that “the talks process has endeavoured to resolve the central problem where community identity and allegiance do not coincide with the state. The challenge has been to find ways to satisfy the concerns of different groups and at the same time not concede on fundamental international principles and practice”. He believes that the “basis for a lasting solution of intra-state conflict is ‘group accommodation’ or ‘minority protection’ and accordingly assesses the Agreement on its application of that principle”.

How far does the Agreement reach a good balance between the parties?

Exercise 1

1. Read the extracts below that are written from a pro-Agreement Unionist perspective. Also refer to the summary of the Agreement. (10 minutes)

2. Individually, consider that you are a member of the nationalist minority. Do you feel that the terms of the Agreement would protect your interests? (5 minutes)

3. Discuss your conclusions in small groups. (15 minutes)

4. Discuss the ways in which it does not deal adequately with nationalist concerns? Consider if there are ways in which those concerns can be safeguarded better without alienating the other community? (10 minutes)

Exercise 2

The Agreement was opposed by a substantial section of the Unionist community.

1. Consider yourself an anti-Agreement Unionist. Why would you think that the Agreement does not protect your interests? (5 minutes)

2. In small groups discuss what more you would want done? (15 minutes) Would these steps be possible without weakening the position of nationalists? (10 minutes)

Exercise 3

Nesbitt identified three requirements that would ensure that the Belfast Agreement is fair and balanced:

a role in government for all sections of the community;
the protection of the rights of all sections of the community;
checks and balances.

How far does the Agreement satisfy those requirements?

1. Working individually or in groups, look at the Summary of the Belfast Agreement and identify those provisions that implement the three requirements of Nesbitt. (15 minutes)

2. In groups, assess how far the terms of the agreement satisfy Nesbitt’s requirements. (10 minutes)

3. What gaps exist and how might those gaps be filled? (15 minutes)

Extracts

The sense of superiority and inferiority must be eliminated and confidence and trust must be built.

Unionists must convince nationalists that there will be a fair deal for all within Northern Ireland, that they have a stake in Northern Ireland and will play an important role at each level of government. Equally, nationalists must convince unionists that they will work within the institutions of government in Northern Ireland. This is where real confidence building is required. When David Trimble was elected leader of the Ulster Unionist Party in September 1995, a review of party policy was carried out and in November, at a special meeting of the party’s ruling Executive, it was agreed that all constitutional parties should have “a role at each level of responsibility in proportion to party strengths”.

The structures of government contained in the Belfast Agreement reflect this inclusive dimension. In Strand One - Democratic Institutions in Northern Ireland - Section 2 refers to “safeguards to ensure that all sections of the community can participate and work together successfully in the operation of these institutions and that all sections of the community are protected”. Measures proposed include the proportional allocation of ministerial positions and committee chairs using a mathematical formula (the d’Hondt system) which ensures that parties are allocated positions according to party strength in the Assembly.

There are also proposals to ensure that key decisions have cross-community support. Rather than ignoring the identity background of members of the Assembly, each member is required to register “a designation of identity - nationalist, unionist or other” and two alternative voting systems are proposed for key decisions.
Dermot Nesbitt (UUP)

The UUP’s manifesto for the elections to the Northern Ireland Forum for Political Dialogue in June 1996 stated that rights were “the fundamental building block in any agreement regarding the future governance of Northern Ireland”. This pledge reflects much more than a party obligation: it is an obligation on all involved to subscribe to international norms. The basic requirements for order in any democratic society today are found within international human rights law.
Dermot Nesbitt (UUP)

In the context of Northern Ireland there is no more important issue to be addressed than how to organize society with respect to human rights. This corpus of rights embraces a number of categories: civil, political, economic, social, religious and cultural. The question is how to manage the differences that exist in Northern Ireland in ways consistent with democratic values and human rights.
Dermot Nesbitt (UUP)

From a unionist point of view [North-South and British-Irish] bodies do not take away from the current position of Northern Ireland within the United Kingdom but from a nationalist perspective they provide opportunities for co-operation based on mutual benefit and allowing for their identification with the whole island of Ireland.

In order to make these arrangements function each identity group has to have confidence in the commitment and goodwill of the others. The Agreement therefore included a system of checks and balances so that if one part of the Agreement does not work the other parts will also cease to apply. For example, Ministers are expected to sit on the Executive Committee of the Northern Ireland Assembly and to take part in the North–South Ministerial Council established to “bring together those with executive responsibilities in Northern Ireland and the Irish government” and “develop consultation, co-operation and action within the island of Ireland”. Some politicians will embrace this dual role as a reflection of their commitment to good government. Others may find one or other of these bodies difficult, but they do not have the option of only taking part in the one which fits best with their own sense of identity.
Dermot Nesbitt (UUP)

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