Communication from the Commission to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions on the special support programme for peace and reconciliation in Northern Ireland and the border counties of Ireland (1995-1999)
Date: 1997-11-26
Institutions: European Commission
Subjects: EU aid, Ireland, Northern Ireland, aid programme, peacekeeping

COMMISSION  OF THE EUROPEAN COMMUNITIES 

Brussels, 26.11.1997 
COM(97)  642 final 

COMMUNICATION  FROM THE COMMISSION 

TO THE COUNCIL, THE EUROPEAN  PARLIAMENT, 
THE ECONOMIC AND SOCIAL  COMMITTEE 
AND THE COMMITTEE OF THE REGIONS 

on 

THE SPECIAL SUPPORT PROGRAMME FOR PEACE AND 
RECONCILIATION IN NORTHERN IRELAND AND THE BORDER 
COUNTIES OF IRELAND (1995-1999) 

1.  INTRODUCTION 

1.1  Reason for this Communication 

In a widely welcomed  move, the European Union supported  in  1995 the  emerging  peace 
process  in  Northern  Ireland  through  the  Special  Support  Programme  for  Peace  and 
Reconciliation  in  Northern  Ireland  and  the  Border  Counties  of  Ireland.  This  five  year 
Programme was endowed with financial resources for a three year period.  Further  funding 
was  made  subject  to  a  review  based  on  a  Commission  report:  this  Communication 
It  supports  a  Commission  proposal  in  the  Preliminary  Draft 
constitutes  that  report. 
Budget  for  1998 that  a further  amount  of  100 MECU be allocated  to the  Programme,  as 
well as its intention to propose a further  allocation for  1999. 

1.2  Origin of the Programme 

In  Autumn  1994,  shortly  after  the  cessation  of  violence  in  Northern  Ireland,  a  special 
Commission  Task  Force  was  created  to  "look  into  further  ways  of  giving  practical 
assistance"  in  the  light  of  a  promising  new  situation  in  the  region.  The  three  Northern 
Ireland  members  of  the  European  Parliament,  Dr.  I.  Paisley,  Mr.  J.  Hume,  and  Mr.  J. 
Nicholson were directly involved  with this initiative from the outset.  One  key  conclusion 
of the Task Force was that "the European Union has a clear interest and vital role to play 
in maintaining the momentum for peace and reconciliation,  not  only for  the benefit  of the 
region most affected,  but also for the wider benefit  of the European  Union as a whole". 

Following  the  report  of  this  Task  Force,  the  European  Council,  in  Essen  in  December 
1994, decided that  it was opportune to  establish a Special  Support  Programme  for  Peace 
and  Reconciliation  in  Northern  Ireland  and  the  Border  Counties  of  Ireland.  The 
Programme (1995-1999) was prepared jointly by the Governments of the United Kingdom 
and  Ireland  and  approved  by  the  Commission  on  28  July  1995.  Assistance  from  the 
Structural  Funds  and  the  FIFG  of  300 MECU  was  provided  for  the  period  1995-1997. 
The  Commission  Decision  specified  that  up  to  80%  of  the  funding  was  for  activities  in 
Northern  Ireland,  not  less  than  20%  for  activities  in  the  Border  Counties,  and  that  a 
minimum of  15% should be devoted to activities carried out in a cross-border  context. 

1.3  Additional Funding 

The Commission believes that the Programme is being implemented  as intended  and that it 
is  making  a  significant  contribution  to  sustaining  peace  and  promoting  reconciliation, 
particularly  in the  light  of  progress  at  the  level  of  political  negotiations  and  of  a  much-
improved  security  situation.  It  therefore  proposed  in  the  Preliminary  Draft  Budget  for 
Î998  that  the  Programme  be  given  an  additional  allocation  of  100 MECU  for  Î998.  It 
now  proposes  that  the  amount  of  100 MECU  for  1998  should  come  from  Structural 
Funds  resources  which  have  not  yet  been  allocated  to  Member  States.  It  intends  to 
propose  that  the  amount  to  be  provided  for  1999  should  be  drawn  from  othsr 
programmes  supported  by  the  Structural  Funds  and  exhibiting  lasting  underspends. 
It 
should  be  underlined  that  uncertainty  about  further  funding  causes  great  concern  on  the 
ground and risks undoing many of the positive effects  of the Programme. Any interruption 
of  funding  would  reduce  significantly  the  effectiveness  of  many  actions,  m  particular 
through  the  loss  of  staff  as  contracts  become  shorter  cr  uncertain,  and  through 
beneficiaries  only beginning to develop and act on worthwhile ideas when funds dry up. 

X-  4 

2.  OBJECTIVES AND PRIORITIES 

2.1  Objectives 

An  extensive  consultation  process  preceded  the  preparation  of  the  Programme  and 
influenced  the definition  of its strategic aim and objectives. The Programme states that the 
overwhelming need to maintain the momentum for peace forms the rationale underpinning 
the Programme  and it underlines the need to tackle socio-economic difficulties  as part of 
this process. 

The  strategic  aim  is  therefore  defined  as  follows:  "to  reinforce  progress  towards  a 
peaceful  and  stable  society  and  to  promote  reconciliation  by  increasing  economic 
development  and employment,  promoting urban and rural regeneration,  developing cross-
border cooperation and extending social inclusion." 

Two strategic objectives give a more precise focus to the action to be undertaken: 

- 

- 

to promote the social inclusion of those who are at the margins of social and economic 
life; 

to exploit the opportunities and to address the needs arising from the peace process in 
order to boost economic growth and advance social and economic regeneration. 

It is made clear that action will concentrate principally on those areas  and  sections of the 
population most adversely affected  by the violence and suffering  most acute deprivation. 

2.2  Priorities 

The  allocation  of  funding  to  the  sub-programmes  reflects  the  basic  objectives  and  in 
particular the importance of social inclusion,  which is both a specific  priority  and  a value 
which is relevant to all other priorities. 

TABLE 1 

SUB-PROGRAMME 

Employment 

Urban & Rural Regeneration 

Cross-border Development 

Social Inclusion 

MECU 

I Amount of Total I  % of 
Total 

Funding 

55.375 

13,4 

69.008 

16,7 

66.633 

16,2 

93.938 

22,8 

Investment/Industrial Development 

59.855 

14,5 

Partnerships (N.Ireland only) 

Technical Assistance 

58.940 

14,3 

8.621 

2,1 

412.370  100,0 

3.  PROGRESS OF THE PEACE PROGRAMME 

3.1  Administrative Implementation of the Programme 

The  Programme  is  an  imaginative  response  to  the  needs  of  Northern  Ireland  and  the 
Border Counties and the means of delivering the Programme are equally innovative. There 
are two principal ways in which this has been achieved, through (a) decentralised  delivery 
mechanisms and decision-making and (b) ongoing and formalised  consultation. 

(a)  Relatively  decentralised  implementation  is  one  of  the  principal  features  of  the 
Programme:  close  to  60%  of  the  total  assistance  is  administered  by  bodies  other  than 
Government. There are three main channels. 

The first channel  is  composed  of  Non-Governmental  Organisations  (NGOs)  and  similar 
bodies,  being  either  Intermediary  Funding  Bodies  (IFB)  or  Sectoral  Partners,  which  are 
together  responsible  for  about  40%  of  aid.  There  are  five  IFB s  operating  solely  in 
Northern Ireland  and two in the Border  Counties, together with an eighth which operates 
on a cross-border  basis. IFBs are independent  organisations, with  experience  of working 
closely  with  groups  to  be  targeted  under  this  Programme.  Four  Sectoral  Partners  in 
Northern Ireland are similar but, in relation to the operation of this Programme, they have 
different  and somewhat more direct links to government departments or agencies. 

The second channel is area-based,  i.e. 26 District Partnerships in Northern  Ireland  and six 
County  Council-led  Task  Forces  in  the  Border  Counties,  which  are  composed  of 
representatives of local interests and which are responsible for some  17% of funding. 

Government  departments  and  agencies  constitute  the  third  channel,  handling  about 43% 
of funding,  intended to support mainly economic development and  infrastructure. 

This level of decentralisation  should be contrasted, for example, with the Northern Ireland 
Single  Programme,  which  is  the  framework  for  the  more  centralised  delivery  of 
mainstream  Structural Funding, where decision-making  is largely confined  to  government 
departments and agencies. 

(b)  Ongoing  consultation  is another  important  feature  of the Programme.  The  extensive 
consultation  process  which  occurred  at the preparatory  stage  has been  prolonged  by the 
creation  of  a Consultative  Forum,  composed  of  representatives  of  a very  wide  range  of 
interests in the eligible areas. It has direct  input to the Monitoring  Committee  through  its 
Co-Chairmen, who are members of the Committee. The Forum  has proved to be an arena 
in  which  information  and  opinions  on  all  aspects  of  the  Programme  are  expressed  and 
conveyed to the Monitoring Committee. 

3.2  Applications, Approvals and Expenditure 

Many of the implementing bodies had to be set up specially or were not familiar  with the 
administration  of  Structural  Funds,  and  in  addition,  appropriate  arrangements  had  tc  be 
made for  coordination  between the various bodies  as well  as for  adequate  administrative 
and accounting procedures.  All the necessary  arrangements are now well in place and  are 
functioning  effectively.  They will be improved  in certain  respects  as  a  result  of the  Mid-
Term Review. 

The Programme has generated  a very high level of applications in the eligible areas, which 
is a clear measure  of people's  awareness of the Programme,  and  that  it  is responding  to 

their needs. In the Border Counties,  1  400 applications have been received, of which over 
950 have been selected.  The total number of applications in Northern Ireland  is  close to 
14 000, of which over 7 000 have been approved.  The rate of increase in applications and 
approvals in Northern Ireland is shown by comparing the figures for  1996 and for the first 
half of 1997: 

TABLE 2 

Northern  Ireland 

_ 

Applications 
7193 

1997/1 st Half 

6 467 

Approvals 
ÏQÔÎ 

4 226 

It  is  expected  that  the  high  level  of  applications  will  continue,  if  additional  funding  is 
provided,  as over 45% of the number of grants approved  in  1996 was composed  of small 
grants  intended  to  support  basic  capacity-building,  training  and  project  development.  A 
high proportion of the small grants will be followed  by applications for full  project  grants: 
this indicates that much worthwhile work  is only just  beginning,  and that  further  funding 
will  be  needed  to  maximise  its  value,  and  carry  it  through.  A  number  of  measures  are 
already  over-committed,  partly  due  to  exchange  rate  movements.  By  end  1997  the 
resources  currently  available will have been allocated to  project  promoters  and  it is clear 
that  further  funding  will be  required  to  meet  existing  and  future  demand  and  thereby  to 
realise the Programme's full  potential to respond effectively  to needs and opportunities on 
the ground. 

Total expenditure (national and Community spending) under the Programme  to  end  1996 
amounted  to  29 MECU.  The forecast  for  1997 in the current  financial  plan  approved  by 
the  Monitoring  Committee  is  202  MECU.  1997  will  be  the  first  full  year  in  which 
approved  projects  under  all  sub-programmes  will  be  implemented  and  a  substantial 
acceleration  of expenditure will occur as a result.  Expenditure  of  182 MECU  on  projects 
approved in 1995-1997 will occur in 1998-1999. 

3.3  Structural Funds' Commitments and Payments 

The  other  basic  measure  of  the  progress  of  the  Programme  is  the  level  of  Structural 
Funds' commitments and payments. 

Actual  and  forecast  commitments  and  payments  by  the  Structural  Funds,  at  9  October 
1997, were as follows: 

EC COMMITMENTS AND PAYMENTS 

TABLE 3 

MECU 

COMMITMENTS 

Total 

ERDF 

ESF 

EAGGF 

FIFG 

Cumulative to  9.10.1997 

123.47 

67.13 

46.28 

9.40 

Yet to be made in 1997 

109.75 

61.87 

40.75 

6.79 

Total to end  1997 

233.22 

128.99 

87.04 

16.19 

0.66 

0.34 

1.00 

1998-1999 

TOTAL 

68.52 

19.54 

42.31 

6.23 

0.45 

301.74 

148.53 

129.34 

22.41 

1.45 

PAYMENTS 

Total 

ERDF 

ESF 

EAGGF 

FIFG 

Cumulative to  9.10.1997 

97.85 

53.70 

36.41 

7.41 

0.33 

Yet to be made in 1997 

67.99 

34.97 

32.53 

0.00 

Total to end  1997 

165.84 

88.68 

68.93 

7.41 

0.49 

0.82 

Post  1997 

TOTAL 

135.90 

59.86 

60.41 

15.00 

0.63 

301.74 

148.53 

129.34 

22.41 

1.45 

While all the national and European resources currently available will be fully  allocated by 
the  implementing  bodies  in the  period  1995-1997,  they  will  not  be  fully  spent,  with  the 
result  that  the  full  amount  of  Structural  Funds'  aid  of  300  MECU  will  not  be  fully 
committed or paid by the Commission until later in the Programme period. 

3.4  Additionality 

A further  concern  in the  implementation  of  the  Programme  has  been  that  it  is  properly 
additional.  This  has  been  expressed  by  the  Consultative  Forum  and  by  many  other 
interested parties. The Commission is attentive to this concern. 

The Programme  states that  "expenditure under the  Programme  will be fully  additional  to 
expenditure which is due to take place in the eligible areas under the  Single Programming 
Document  (SPD)  for  Northern  Ireland,  the  Community  Support  Framework  (CSF)  for 
Ireland  and the Community Initiative programmes." Annual returns of expenditure by the 
UK  authorities  to  the  Commission  have  demonstrated  compliance  with  the  additionality 
requirement.  For the Border Counties the Department of Finance, in cooperation with the 
sectoral Departments, has provided the baseline data in relation to which additionality has 
been demonstrated.  The Commission, in cooperation with the Department  of Finance and 

the Border Regional Authority, will continue to monitor that the additionality requirement 
is complied with. 

3.5  Effects of the  Programme 

The  overall  effect  of the Programme  is  clear  and  important.  It  tilts  activity  in favour  of 
social  and  political  commitment  rather than violence.  It  gives  crucial  moral  and  financial 
support to those searching for  common ground and practical ways of working together  to 
use that  common  ground  to  build  a better  society.  It  is for  these  reasons that  continuing 
support is so vital: the overwhelming majority  of the people of the region want peace, and 
this Programme is helping them achieve it. 

This support for progress towards peace works in the following ways. 

It is inclusive 

Targeting  people who have been marginalised  reduces alienation,  and with  it the  support 
and potential for violence. 

Since ideas for  actions  come  substantially from the  people themselves,  rather  than  being 
offered  to  them,  a sense of ownership  can  develop.  Grass-roots,  bottom-up  involvement 
gives everyone more of a stake in trying to move forwards  rather than back. 

In  addition,  the  policy  of  involving  people  "on  the  ground"  as  much  as  possible  in  the 
whole  process  of  management  and 
that  substantial 
responsibility is also transferred.  The level of decision-making  is brought  closer to  people 
previously left  out. 

implementation  has  meant 

It encourages consensus instead of confrontation: 

Inclusion  and  involvement  encourage  new approaches  to  decision-making  and  resolution 
of  differences.  Consensus  building  is  necessary  to  achieve  objectives.  Alliances  across 
differences  are crucial in resolving practical problems. Confrontation  is generally counter 
productive.  In  a  region  where  opportunities  to  work  together  have  been  too  few,  the 
Peace  Programme  has  provided  important  structures  and  incentives  which  have 
encouraged  co-operation.  This  has  been  most  notably  demonstrated  in  the  case  of  the 
District Partnerships. The result has been that people can see directly the value of a stable 
society,  and  the  value  of  using  argument  and  debate  to  tackle  differences,  rather  than 
other more destructive paths. 

It provides a European dimension. 

European  involvement  helps to remould the situation by providing support  for  action  in a 
new  and  independent  framework  which  is  perceived  to  be  non-partisan  and  neutral.  It 
encourages and provides opportunities for  attitudes and activities which are  characteristic 
of the Union's own evolution - social inclusion, partnership and dialogue, finding  common 
interests  and  working  together  with  a  common  purpose.  In  particular,  two  significant 
developments  have  occurred.  The  Programme  has  greatly  expanded  the  role  of  civil 
society, by its inclusiveness and by giving non-governmental  bodies the opportunity  to be 
active agents of change and development.  In addition,  the District  Partnerships  constitute 
a working  model of local cooperation,  which involves political  representatives  across  the 
spectrum  who  put  aside  their  differences  on  other  matters  for  the  sake  of  their 
communities.  The  Northern  Ireland  Council  for  Voluntary  Action  summarises  the 

9 

approach  as follows:  "The European Community is about  building trust,  cooperation  and 
partnership  between  former  enemies.  The  Special  Support  Programme  for  Peace  and 
Reconciliation is a micro version of that central theme. It is the most "European" thing the 
European  Union  has  done  in Northern  Ireland  and  the  Border  Counties.  It  is  the  most 
specific  demonstration  of  the  core  values  of  the  Union  expressed  at  any  regional  level 
within the Union". 

4.  MID-TERM REVIEW 

4.1  Progress Examined in the Mid-Term Review 

The  preceding  sections  have  summarised  progress  made  to  date  in the  execution  of the 
Programme.  Progress  is  now  being  examined  in  the  formal  and  obligatory  Mid-Term 
Review,  which  is  one  of  the  principal  responsibilities  of  the  Monitoring  Committee, 
requiring it  to  review progress  and to  make any necessary  adjustments.  In doing  so, the 
Committee  has  the  assistance  of  the  Consultative  Forum,  which  reported  on  the 
implementation,  the  impact  and  the  rationale  and  future  of the  Programme.  In  addition, 
consultants  were  engaged  to  carry  out  a  Mid-Term  Evaluation,  their  report  has  been 
presented and discussed at two special meetings of the Committee. At a special meeting to 
be  held  later  this  year,  the  Monitoring  Committee  is  expected  to  take  decisions  to 
complete the Mid-Term Review. 

The  Consultative  Forum's  consultation  of  applicants,  beneficiaries  and  other  interests 
revealed  that,  while  there  were  issues  to  be  addressed  in  relation  to  coordination  and 
cohesion, the Programme was broadly welcomed and felt  to have the potential  to  make a 
real impact.  In particular,  the  strengthening  of local  democracy  and  decision-making  was 
viewed  as the  most  obvious  and  successful  impact  on  peace  and  reconciliation  to  date. 
Finally,  the  Forum  pointed  out  that  the  Programme,  despite  its  innovation  and  targeted 
intent,  cannot  substitute  for  a meaningful  political  process  and  that  its  impact  would  be 
greatly enhanced if such a process were taking place. 

special  nature  and  degree  of  decentralisation, 

The  Mid-Term  Evaluation  (which  examined  the  operation  of  the  Programme  to  end-
1996)  noted  the  large  volume  of  applications;  pointed  out  that,  as  a  result  of  the 
Programme's  complexity, 
the 
implementation  mechanisms took  some time to  establish;  and  its  overall  conclusion  with 
respect to operational effectiveness  was that the delivery mechanisms had been effective  in 
making progress towards the utilisation of the funds.  The consultants  surveyed  applicants 
and  found  that  on  average  69%  regarded  the  funding  bodies  as  having  performed 
adequately  or  very  adequately.  While  the  peace  process  searched  for  new  and  more 
productive  ways  forward,  88%  considered  that  the  need  for  this  Programme  was  now 
greater  than  when  it  was  launched.  Even  in  the  absence  of  a  stable  peace,  the  need  to 
pursue reconciliation efforts  was widely accepted and 76% of applicants claimed that their 
projects  would  have a direct  impact  on reconciliation.The report  shows that  in  Northern 
Ireland funds  are effectively  channelled to the most disadvantaged  areas and also that both 
communities  are being treated  equitably.  The  impacts  at  this  stage  are  primarily  process 
benefits:  e.g. the Programme's procedures  and  practices are intended  to be  inclusive and 
participatory  and  thus to  promote  social  inclusion.  In particular  District  Partnerships  are 
cross-community  multi-sectoral  bodies  which  facilitate  cooperation  and  consensus.  No 
proposals  are  made  for  changes  in  the  measures  or  for  shifts  of  resources  within  the 
Programme.  The  report  refers  to  the presence  of a substantial  "pipeline" of  applications: 
certain  sub-programmes  were  already  over-subscribed  at  the  end  of  1996.  Finally,  the 

10 

consultants make several recommendations  designed to improve monitoring,  coordination 
and complementarity. 

4.2  The Commission Approach to the Mid-Term  Review 

In  its  approach  to  the  Mid-Term  Review  and  the  second  phase  of  the  Programme,  the 
Commission will be guided more particularly_by the following considerations. 

The Commission believes that the strategic aim of the Programme  - to  reinforce  progress 
towards  a  peaceful  and  stable  society  and  to  promote  reconciliation  -  remains  valid. 
Experience  has  shown  that  funding  bodies  and  project  promoters  require  additional 
guidance  on  the  link  between  a  particular  project  and  strengthening  peace  and 
reconciliation. Project  promoters and funding bodies should be able to give a clear answer 
to  the  question  "how  does  my  project/the  activities  we  support  sustain  and  strengthen 
peace and/or promote reconciliation?" 

While the basic structure of seven Sub-Programmes will remain unchanged, the Mid-Term 
Review  provides  an  opportunity  to  examine  the  measures  within  the  Sub-Programmes, 
with  a  view  to  continuing  those  which  correspond  best  to  the  aims  of  the  Programme, 
taking  into  account  both  the  substance  of the  actions  supported  and  the  procedures  and 
processes which characterise the various measures.  If necessary,  certain  measures  will be 
deleted  or  merged  and  new  measures will be  added.  The  allocation  of  resources  for  the 
second phase of the Programme will be guided by the outcome of this review. 

In  reviewing  the  performance  of  the  three  channels  for  the  distribution  of  assistance 
(Government  Departments and agencies, Intermediary Funding Bodies, area-based  bodies 
such as District Partnerships and County Council-led  Task Forces),  attention  will be paid 
both to  the effectiveness  of their  operations  and  the  extent  to  which  their  methods  have 
been  open  and  inclusive.  In  addition,  a  clearer  definition  is  required  of  the  roles  and 
responsibilities  of  sectoral  implementing  bodies,  such  as  Departments  and  IFBs,  and 
territorial  bodies,  such  as  District  Partnerships  and  Task  Forces,  in  order  to  avoid  any 
duplication  and  to  ensure  coordination  and  cooperation.  Finally,  the  requirements  and 
procedures  relating to  applications  should be re-examined  with  a view  to  simplifying  and 
shortening them wherever possible. 

In  their  evaluation  report,  the  consultants  made  several  recommendations  designed  to 
improve  monitoring  and  evaluation  as  well  as  co-ordination  and  complementarity.  The 
Commission expects that  these recommendations  will be examined  and implemented  and, 
in particular, that the "comprehensive database of all projects  assisted under this  initiative 
will  be  established  and  made  available  to  the  public",  as  specified  in  the  Programme 
document. 

The  Commission  acknowledges  the  special  contribution  to  the Mid-Term  Review  which 
has been made by Northern Ireland's members of the European Parliament,  Dr.  I. Paisley. 
Mr. J. Hume and Mr. J. Nicholson, who have published a report  which  contains a  careful 
review of experience to date together with constructive proposals for the second  phase of 
the Programme. 

11 

5.  CONTINUATION OF THE PROGRAMME 

5.1  The Political Context 

The political context  in which the Programme is being implemented  has much improved 
in recent  months.  At  ground  level,  decisions  taken  by the  Orange  Order  concerning  the 
routes  of  several  parades  in  summer  1997  greatly  reduced  the  amount  of  conflict.  The 
IRA  decision  to  renew  its  ceasefire,  added  to  the  existing  ceasefire  by  loyalist 
paramilitaries,  transforms  the  situation  and  permits  all  attention  and  efforts  to  focus  on 
reaching  a  political  settlement.  Energetic  efforts  are  being  made  by  political  parties  in 
Northern  Ireland,  aided  and  encouraged  by  both  the  British  Government  and  the  Irish 
Government, 
to  reach  a  comprehensive  political  settlement.  Substantive  political 
negotiations have started, with a view to reaching an agreement by May  1998. This would 
be  put  to  the  people  north  and  south  of the border  in two  referenda,  offering  a  historic 
accord to all the people living on the island of Ireland. 

5.2  The Need for the Programme 

While there are signs of hope in the political situation,  it is clear that  profound  changes in 
attitudes and practices are required to  sustain peace and to provide a solid  foundation  for 
a political  settlement..  The contribution  made by the Programme  is becoming  ever  more 
substantial. 

Some  examples  of  projects  which  have  been  assisted  are  contained  in  Annex  1,  to 
illustrate  the  range  and  impact  of  activities  supported  by  the  Programme.  They 
demonstrate what have become the hallmarks of the Programme, including: a transparent, 
inclusive  style  of  decision-making  about  policy  and  activity;  an  insistence  on  local  and 
bottom-up  input,  thereby  fostering  a  sense  of  ownership;  highlighting  the  importance  of 
partnerships,  and  of  striving  for  consensus;  empowering  new  levels  of  society,  through 
decentralisation  and  involvement;  concentrating  on  practical  advances  rather  than 
questions of principle; using all the above to bring a new approach to the search for  peace 
and reconciliation. 

This  contribution  made  by  the  Programme  should  not  be  underestimated.  It  has 
transformed  the  way  many  people  "do  business",  resulting  in  new  and  better  ways  of 
relating to each other. 

5.3  Why European Union Support Must Continue 

The  fact  that  this  Programme  is  supported  by  the  European  Union  is  of  central 
significance. 

The people who want to build a peaceful  and cooperative society need  support.  European 
support  and  solidarity  through  the Peace  Programme  is an  absolutely  crucial  element  of 
that  support.  Europe's  success  in  overcoming  its  divisions  over  the  last  50  years  is  an 
important  example.  Moreover,  European  support  is perceived  as neutral  and  independent 
-  money  without  colour  -  and  it  therefore  reaches  people  who  would  otherwise  remain 
outside. 

It has been said that  the art  of the  Schuman Plan was "to  extract  a policy from  a need" -
to create powerful  positive energy from  potentially destructive ingredients.  The European 
framework  and  resources  are  liberating  positive  and  creative  forces  in  Northern  Ireland 

12 

and  the  Border  Counties,  thereby  preparing  a  better  future  for  all  the  people  in  those 
regions. 

The  Commission  believes  that  telling  the  story  of  the  Programme  is  in  itself  one  of  the 
outputs  of the Programme.  This Programme  is a European  success  story:  it  is using EU 
funding  to  bring  substantially  closer the resolution  of  a long  and  bloody  conflict,  and  its 
contribution is well-recognised. Nor is the contribution just one-way: it is the intention of 
many of those  involved  that  they will actively  assist  the  exchange  of  experience  between 
this  Programme  and  EU-supported  activities  elsewhere,  so  that  experience  gained  in  a 
programme which is exceptional, by reason of its focus  on combating social exclusion and 
its very decentralised implementation system, may be available to other regions. 

5.4  Conclusion 

In  conclusion,  the  high level  of applications,  the  capacity  of  the  implementing  bodies  to 
distribute funding  effectively  and above all the potential contribution of this Programme to 
sustaining  peace  and  promoting  reconciliation  in  Northern  Ireland  and  the  Border 
Counties  (and  elsewhere,  through  the  transfer  of  experience) justify  the  continuation  of 
EU support at its present level in 1998 and further  support in 1999. 

13 

Examples of Activities 

ANNEX 1 

Some examples of projects  which  have been assisted  may illustrate  the range  and  impact 
of activities supported by the Programme. 

Enterprise and Employment 

Worktrain  Ballymena  is  providing  vocational  education  and  training  in  a  particularly 
disadvantaged  area,  where  the  unemployment  rate  is  over  18%.  The  project  aims  to 
guarantee  that  those  who  complete  a training  course will be trained  to  standards  which 
assure an interview with  Sainsburys stores for  any appropriate vacancy. Local  people are 
very proud  that  this  employment  initiative is  sited  in their  housing  estate.  A paramilitary 
mural design on the building was voluntarily removed by those who had placed it there. 

The Nerve Centre in Londonderry  offers  a multi-media production  training course for  the 
young  and  long-term  unemployed.  The  objective  is to  provide  access  for  disadvantaged 
people  to  the  new  employment  opportunities  created  by  the  technology  of  interactive 
media, through a full-time  course lasting  18 months. 

Magherafelt  Women's  Group  secured  project  funding  for  a well  researched,  innovative, 
project  proposal  which  targets  twenty-four  women  drawn  from  both  sections  of  the 
community  in  Rural  South  Deny.  This  community  business  initiative,  based  on  the 
manufacture  and  restoration  of  furniture,  aims  to  form  a  strong  co-operative  business 
structure  with  significant  export  potential.  An integral  component  of this process  will be 
the opportunity for the women to tackle community relations issues directly and to  reflect 
on  how these  issues  affect  their  daily  lives  and  how  they  might  impinge  on  their  future 
business activities. 

The  Interest  Rate  Subsidy  Scheme  offered  a  subsidy  calculated  at  4%  per  annum  on 
qualifying  loans  over  a  five-year  period.  Eligible  proposals  far  exceeded  the  funds 
available. In Northern  Ireland, which received over 80% of the available funds,  over 60% 
of  approved  projects  relate  to  firms  employing  fewer  than  50  people,  are  located  in 
deprived  areas  and/or  contribute to  competitiveness,  innovation  and  export  growth.  The 
potential job creation in Northern Ireland amounts to 7700: almost  75% of these new jobs 
will be in deprived areas. 

Social Inclusion 

WAVE  is  an  organisation  which  offers  care  and  support  to  anyone  bereaved  or 
traumatised  by  violence,  irrespective  of  their  religious,  cultural  or  political  beliefs.  It 
promotes  respect  for  life  and  an  understanding  of  difference  that  is  seen  as  enhancing 
rather  than  threatening.  It  affirms  and  acknowledges  that  there  are  ways  of  resolving 
difference  other  than through  the  use of violence  and  continually  seeks  creative  ways of 
working through issues that have the potential to divide. 

An Crann/The Tree facilitates  peace-building at local level through a range of community-
based arts initiatives, which record personal experiences of sectarian  conflict. 

A Development  Trust  in  an  urban  area  is  providing  high-quality  training,  incorporating 
work  experience  in youth  and  community  work,  to  a small  number  of ex-prisoners.  The 

14 

participants  are  adequately  supported  to  ensure  that  they  make  the  most  of  the 
opportunity. The experience gained in this pilot project will guide the design of actions for 
much larger numbers of current and future  ex-prisoners. 

A  wide  range  of  activities  and  organisations  for  women  has  been  supported,  including 
local  groups  such  as  Women  on  Rural  Development  (Armagh)  and  the  Waterside 
Women's  Group  (Londonderry); Women's News  - a publishing  group  which  was helped 
to  develop  its  project  and  to  employ  an  outreach  worker  to  make  links  with  women's 
groups; and cross-border  projects  such as those organised  by the Federation  of Women's 
Institutes and the Irish Countrywomen's Association. 

Parents  and Kids Together  aims to  encourage  relationships between  children  and  parents 
from both traditions in Lurgan. Work with children in the 5-10 age group is going beyond 
mere contact  in order to  help them grow up with a better understanding  of the  society in 
which  they  live.  Parents  are  actively  involved 
in  promoting  understanding  and 
reconciliation, thus changing attitudes of whole families in all areas of the town. 

An  initiative  taken  by  one  of  the  IFBs,  the  Northern  Ireland  Voluntary  Trust,  is 
particularly  interesting  .  NIVT  retained  the  Mediation  Network  to  bring  together 
participants  in different  projects  if conflict  and  disorder  arose  in the  summer  months,  in 
order to maintain inter-community  relations and to  provide a counterweight  to  the  forces 
of disorder. 

Cross-Border 

Support for  cross-border  projects  includes the reconstruction  of the Aghalane Bridge and 
its approach roads, which will facilitate trade, tourism and social contact. It also includes a 
variety of business and cultural links and cooperation between public bodies. 

Mulmufis a small, privately-owned exhaust manufacturing  company in Co.  Sligo, which is 
a supplier to F.G. Wilson in Larne, a firm which plans to double its turnover  as a result  of 
a joint  venture agreement  with the Caterpillar  Corporation.  Grant-aid  enabled  Mulmuf to 
invest rapidly to expand its production and, as a result, to take on additional workers. 

An innovative  cross-community  and  cross-border  project  involving  six  schools  has  been 
supported.  The project  aims to involve children in a variety of joint activities; to introduce 
children  arid  communities  to  other  European  children  and  cultures;  and  to  use  the  latest 
information  technology in doing so. 

Border Counties 

In  the  Border  Counties,  FM  Cleaning  Systems  provides  a  specialised  contract  cleaning 
service  to  the  domestic,  commercial  and  industrial  sectors.  It  was  started  in  1994  by  a 
disabled  person  and  it  now  employs  17  persons.  The  company  has  received  grant-aid 
which  will  enable  it  to  expand 
its  business  by  becoming  sole  distributor  for 
environmentally-friendly  cleaning  systems.  Because  of  his own  experiences  as a  disabled 
person  seeking work, the firm's  proprietor is committed  to providing employment  for  the 
long-term unemployed. 

County  Leitrim  is  the  most  socially  and  economically  disadvantaged  county  in  the 
Republic.  The  Co.  Leitrim  Partnership  has  been  assisted  to  undertake  several  actions, 
including child-care  provision,  promoting the involvement  of women  in development  and 

15 

the  creation  of  a  multi-functional  Development  and  Education  Centre,  which  will  be  of 
particular help to early school-leavers and to adult education. 

Assistance  was  given to  a group  which  undertook  to  establish  the  number  and  the  needs 
of ex-prisoners who were not associated with the principal paramilitary  organisations.  The 
group  intends  to  provide  personal  and  practical  support  through  a  service  which  will  be 
open to all former prisoners. 

Activities  such as these do not  appear in newspaper headlines or on television  screens but 
they  illustrate the  capacity  of the Programme to  generate  a huge  range of  activities  which 
contribute to economic and social development  or to dealing with the results of conflict. 

16 

ISSN 0254-1475 

COM(97) 642  final 

DOCUMENTS 

EN 

01  03  04  13 

Catalogue number  :  CB-CO-97-667-EN-C 

ISBN  92-78-28434-3 

Office  for Official  Publications of the European Communities 

L-2985 Luxembourg 

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