Annex B
CONSULTATION ON
THE NEXT
PHASE OF
VICTIMS POLICY—SUMMARY
OF RESPONSES
During the course of the last year, Angela Smith,
Minister with responsibility for victims' issues, sought views
and opinions from all interested parties on the development of
the next phase of Government policies to address the needs of
those who have suffered directly as a result of conflict in Northern
Ireland.
This document provides a summary of the responses,
views and opinions expressed during the period of the consultation.
These have been gathered from a range of sources including:
— a leaflet drop through the three
main newspapers which drew 112 responses from individuals;
— the outputs from a series of seven
workshops involving victims, representatives from victims groups,
children and young people and others;
— meetings which the Minister had with
representatives of victims groups, church leaders, service providers,
academics, experts and practitioners in the victims' field;
— outputs from a series of five workshops
(one in each Health Board area and the Sperrin Lakeland Trust
area) which fed into the three day international conference, "Towards
a Better Future—Building Healthy Communities" held
in Belfast in October 2003;
— needs analysis exercises carried
out in both the Northern and Eastern Health and Social Services
Board areas; and
— the report of a series of 8 seminars
held across Northern Ireland for Churches and Faith Communities.
Due to the very wide range of issues raised
and views put forward, this document is presented as a series
of themes arising from consultation. Inevitably, there are some
areas where the themes overlap. However, and although it is not
possible to present all of the views expressed in detail, it is
hoped that the summary presented here reflects the major issues
and provides a picture of the diversity of views expressed. The
document reflects the range rather than the volume or frequency
of comments gathered under each heading and includes some conflicting
views. It will be used to inform Government in the further development
of victims' policies, but is not to be taken as a statement of
Government policy.
To preserve anonymity, respondents are not listed
in this summary.
October 2004
1. TERMINOLOGY
AND DEFINITION
OF "VICTIM"
1.1. Many preferred to see themselves as
"survivors". Some felt that those they regarded as "perpetrators"
should not be viewed as victims while others felt that such people
were just as much victims of the Troubles as anyone else.
2. STATUTORY
SECTOR
2.1. Statutory agencies needed to have a
sympathetic approach to victims' needs and training programmes
should include an element to cover awareness of victims' issues.
Some victims were reluctant to use statutory services because
they were concerned how staff might use confidential information.
2.2. It was felt that a "one-stop shop"
or some type of assistance to access services, statutory and voluntary,
would be helpful. This might include help with practical things
such as completion of forms. There should be Trauma Centres in
each HSS Board area. Trauma Advisory Panels (TAPs) could be more
proactive in developing services and a mechanism for victims/victims'
groups to communicate with the Interdepartmental Working Group
on Victims was suggested.
2.3. Victims' issues need to be part of
the core business of statutory agencies and not just something
which gets attention at certain times as a political issue. Need
a long-term joined-up strategy which takes account of current
needs and which provides for voluntary and statutory bodies to
work more closely together.
3. VOLUNTARY
AND COMMUNITY
SECTOR
3.1. The view was expressed that there were
many areas where the voluntary/community sector staff can act
more quickly and go into areas which would be difficult for statutory
agencies' staff. Although recognition was given to support from
the statutory sector, views were expressed that the approach taken
by the voluntary and community sectors was better in that an individual
was treated as a person rather than a problem. Another view was
expressed was that there was no need for any more organisations
as availability of funds had led to a proliferation of organisations,
with overheads of offices, phones etc consuming much of the available
funds; rather the need was for higher levels of funding for existing
organisations, with the voluntary and community sector being adequately
financed for any service delivered to statutory sector.
3.2. With regard to victims groups, some
felt that theirs was the most valuable help, for example their
self development programmes. Concern was expressed that the funding
arrangements for victims groups were excessively bureaucratic
and that there was a need for the work of the groups to be strategically
funded over many years. Some expressed a view that funding should
go to those victims groups which were encouraging their members
to move forward, while still remembering the past. It was commented
that some individual victims did not wish to be associated with
groups at all, regarding membership of some groups as stigmatising.
4. INFORMATION
ABOUT SERVICES
AND IDENTIFICATION
OF NEED
4.1. A number of comments was made to the
effect that more information on services should be available to
victims. Suggestions were made that directories of services and/or
Web pages at TAPs level might help, as might a regional and local
awareness campaign. It was suggested that, identification of need,
including baseline information, should be an ongoing activity.
4.2. At an individual level it was proposed
that there should be someone to speak to a victim, or his or her
family, to establish needs.
5. SERVICES
5.1. A substantial number of detailed comments
was made regarding the provision of services to victims. These
included a call for the review of the Special Purchase of Evacuated
Dwelling Scheme, financial help with the purchase of a new home
and the need to ensure that a victim with disabilities had accommodation
appropriate to their needs. The idea of "fast tracking"
of victims by the Social Security Agency was also put forward.
In relation to education it was suggested that trauma awareness
training should be provided for teachers and that financial assistance
should be available for "educational catch-up" for those
who had lost out as a result of the Troubles. Funding for the
re-establishment of businesses which had to close and to help
victims set up new businesses was also proposed.
5.2. Very many comments were made regarding
health and social services. These included the need for victims
to be "fast-tracked" for help such as orthopaedic surgery;
a review of trauma services; more training for statutory and voluntary
groups in Cognitive Behavioural Therapy; more help for carers;
better awareness of victims issues and collection of data on victims
by social services; more specialist psychiatric services. It was
commented that there was need for GPs to be better educated regarding
victims' issues and for them to be more aware of the services
which are available and to which their patients might be referred.
Some felt that more use could be made of health visitors and community
practice nurses in meeting the needs of victims.
5.3. The Trauma Counselling Service available
to victims/survivors was seen by some to be a positive step. However,
suggestions were made that there ought to be centres of excellence
for individual and family counselling and that counselling service
providers should give clear statements as to the standards of
services, qualifications and accreditation of counsellors. Waiting
lists for counselling and chronic pain management services needed
to be reduced. Some felt that there should be free access to alternative
therapies (eg reflexology) as part of a broad spectrum of services
and that an exploration of the benefits of alternative therapy
services was required.
6. FUNDING
6.1. A number of calls were made for increased
funding. Some felt that long-term funding to secure services and
to reduce the competition and insecurity that exists within the
victims sector was required. Some felt that different groups such
as ex-prisoners and bereaved families should not be competing
for the same funding. The application form for Peace II funding
was considered to be unduly complex and the emphasis placed on
training by European Union funding programmes was considered unhelpful,
given that the age profile of members of victims/survivors groups
was rising and retraining for employment was considered by some
to be of decreasing importance.
6.2. The additional money provided through
the OFMDFM Strategy Implementation Fund was welcomed. However,
many felt that the overall level of funding was inadequate. Some
commented that any additional funding should not be directed into
the Health Service as victims' groups were better qualified to
address the issues. In general the main issue relating to funding
was that of sustainability and the difficulties encountered by
groups in operating under current short-term funding arrangements.
7. RESEARCH
7.1. A variety of comments was made regarding
research in relation to mental health, bereavement therapy, Post
Traumatic Stress Disorder, Personality Disorder Specialist Services
and the need to look at techniques used elsewhere which might
be adapted for Northern Ireland. Research was also needed regarding
the high suicide rate and its relationship to the conflict.
8. GENERAL VIEWS
ON CONSULTATION
PROCESS
8.1. There was some appreciation of the
efforts being made by the Victims Minister to consult and involve
a wide range of individuals, groups and organisations in the next
phase of victims' policy. However, views were expressed that more
or less the same ground had been covered in previous consultations
over the last few years.
9. COMMUNITY
ISSUES
9.1. A range of views was expressed that
the power of paramilitaries needed to be broken; that people were
still living in fear and that fear of moving outside one's own
locality would leave a legacy for future generations; that there
was a need for more long-term funding for communities and for
cross-community work; that people were misled by some local politicians
who took a sectarian view; that slogans and flags are perpetuating
hatred and that integrated schooling and housing were important.
Some commented that there needed to be more police on the ground
and that "terrorists seem to get everything". It was
also commented that the wives and members of the security forces
felt that they had been forgotten.
9.2. It was suggested that it was important
to listen to the views and fears of young people as they were
suffering the repercussions of the conflict.
10. FAMILIES/CHILDREN
10.1. The importance of the family to society
was noted. It was pointed out that many men and women had lost
partners through the troubles and have been left to raise children
alone. Some of these parents had to give up work. It was suggested
that any barriers to childcare for these parents should be lifted.
The problems of isolation of ex-UDR members who could not tell
their neighbours about their job was were commented upon.
10.2. Some felt that money should be put
into a trust for children of victims and that the suffering of
siblings should be recognised and a fund set up specifically to
help them. Reference was made to young people being drawn into
paramilitary acts at a very young age as "invisible victims"
and to the trans-generational impact on families affected by the
conflict.
11. RURAL ISSUES
11.1. The problems of rural isolation were
commented upon, particularly in relation to difficulties in accessing
services, problems with transport and the need for outreach services.
People who were forced to move away from property along the border
needed financial assistance to re-establish farms; this included
people who had suffered in the early stages of the Troubles.
12. CLERGY/PASTORAL
CARE WORKERS
12.1. Clergy and faith workers identified
a need for personal and spiritual support, pastoral care and supervision
to prevent burn out and overcome feelings of isolation. There
is a need to develop a networking system for clergy and faith
workers and to provide opportunities for cross-community clergy/ministry
contact. More contact with psychological therapy groups and an
exchange of dialogue and learning would also be useful as would
in-service practical training, eg as expert counsellors.
12.2. It was suggested that there was a
need for representatives of the clergy/faith workers to be involved
in the work of government through a forum or similar body and
that the way forward should be for the Victims Unit, the Victims
Liaison Unit, the Health Service and Churches to work together.
13. VICTIMS COMMISSIONER
13.1. There was a divergence of views on
the need for a Victims Commissioner or Ombudsman. Some felt that
he/she should be appointed on a dedicated long-term basis; should
not be a civil servant and should come from grass roots level.
The Children's Commissioner was put forward as a possible model.
There should be one central agency dealing with victims. Others
questioned the need for a Commissioner given that all the required
structures are in place.
14. RECOGNITION
AND ACKNOWLEDGEMENT
14.1. A wide range of proposals regarding
the attention that ought to be paid to victims were put forward.
These covered such matters as a call for the UDR/RIR to receive
some recognition equivalent to the George Cross given to the RUC
and for other organisations such as the Fire Brigade and Customs
and Excise to be given some form or recognition.
14.2. Some views were expressed that all
victims should have equal recognition and that it was not right
that larger atrocities attracted all the publicity. Concerns were
also expressed as to the role of the media in that victims could
be re-traumatised and perpetrators glorified. It was noted that
the Government had given recognition to some extent, but some
felt there should be some form of written acknowledgement of the
price paid by those who have been injured or killed as a result
of the Troubles. It was suggested that more attention ought to
be paid to those who had been injured as opposed to those killed.
15. MEMORIALS
15.1. Various views were put forward as
to a memorial to victims. These included proposals for a memorial
garden to cover Crown Forces and civilians. The idea of separate
memorials to civilian victims was also proposed. Some were opposed
to any memorial which included both innocent victims and perpetrators.
15.2. Some who would have liked to see some
type of memorial recognised that it would be contentious. Others
felt that resources would be better spent on a pain clinic for
victims instead of a garden of remembrance, or other such form
of memorial.
16. REMEMBERING/STORYTELLING
16.1. A number of views was expressed that
victims needed an opportunity to tell their individual stories,
perhaps in the form of a book, and to share their experiences.
17. TRUTH AND
JUSTICE
17.1. This subject received substantial
attention and a very wide variety of views was expressed. These
included comments that all participants in the conflict, including
the British and Irish governments should admit their roles and
responsibilities. The view was expressed that not enough was being
done to help victims' families find out more information about
how the death of relatives was investigated or to help them understand
why no one had been prosecuted.
17.2. It was suggested that before the people
of Northern Ireland can be properly reconciled, they must be content
that the truth regarding various matters becomes common knowledge
and that justice has been done. Some thought that if acknowledgements
of wrongdoing were offered, perhaps people could then move on.
However, it was also stated that not everyone will be happy with
whatever version of the truth they are given. A matter of concern
was whether the truth could be obtained when individuals feared
the consequences. There were objections to an amnesty forming
a part of any truth and justice process.
17.3. While the view was expressed that
all murderers should be jailed for life, others felt that the
emphasis should be on truth and healing. The problem of separating
truth and justice was discussed, with the view being expressed
that separating truth and justice would cause pain to the victim
or his/her family; it would be a very delicate matter to determine
whether the benefits arising from the separation of truth and
justice were for the greater good. Some expressed the view that
it was unclear how a truth and justice process would work.
18. INQUIRIES
18.1. Views expressed ranged from concerns
that open inquiries are not always in the best interests of victims
and their families; that inquiries forced individuals to relive
trauma and that public inquiries were a waste of money. However.
some took the view that a specialist team to investigate what
happened to their loved ones would be a good idea.
19. TRUTH COMMISSION
19.1. It was suggested that a small committee
should be appointed to take forward the truth and reconciliation
agenda and that politicians should not be included on this committee.
The idea of some form of Commission led by three people not from
Northern Ireland was put forward.
19.2. Criticism was expressed that Truth
courts, South African style, would not be appropriate in Northern
Ireland while some opposed the whole concept of a Truth and Reconciliation
Commission being set up. It was suggested that, without a complete
end to terrorist activities it is premature to establish a commission
type forum and that too much is still disputed to enable a satisfactory
"truth" to be accepted by all parties. There was some
feeling that victims wanted to move on and that a Truth and Reconciliation
Commission would not bring healing as different people take different
roads in order to cope. Others felt that a Truth Commission entailed
some form of amnesty and that they would have difficulty with
that.
20. RECONCILIATION
& HEALING
20.1. It was suggested that reconciliation
and healing cannot be taken forward before Truth and Justice is
achieved and that public apologies might be a way forward. Others
felt that reconciliation could not be achieved while paramilitaries
still exist and without a stronger attack by government on terrorism.
Some felt that reconciliation, though a laudable objective, was
over ambitious for the moment; unless progress on closure for
the victims and relatives happens. It was suggested that it might
well take one or two generations to pass before the rawness of
recent events can even begin to heal. Views were expressed that
reconciliation would remain difficult before the conflict ceased
and all the arms were in.
21. COMPENSATION
21.1. Many comments were made to the effect
that the compensation system should be reviewed. These comments
related to detailed matters relating to the legislation and administrative
processes. For example it was argued that the system should be
speeded up; that compensation for loss of business was inadequate;
that the system treated certain members of the security forces
unfairly and that recent changes to the compensation arrangements
should be made retrospective so that victims of earlier incidents
would benefit. Some people found the concept of compensation irrelevant
or even distasteful: they took the view that the loss of a loved
one can never be truly compensated.
21.2. It was suggested that the compensation
system was easier for victims of non-troubles related incidents
and that earlier victims have not received equitable treatment.
The compensation and associated court processes were regarded
as undignified for victims with no compensation for "loss
of love".
22. JUSTICE SYSTEM,
LAW & ORDER
22.1. Concern was expressed that people
did not know how cases were investigated and how decisions not
to reopen certain cases were made. People needed to know why no
one has been brought to justice and why the investigation has
never been reopened. Some felt that the PSNI needed more resources
to pursue unsolved murder cases and that if the authorities tackled
terrorism and racketeering more effectively this would bring solice
to victims. Greater police protection in the workplace was an
issue for some.
22.2. Some complaints were made about the
costs involved in obtaining details of the inquest for each person
involved and that relatives were not informed when the inquest
was to be held and had great trouble getting information released.
In relation to the courts, some felt that victims were made to
feel like perpetrators and that judges should be accountable to
some form or governing body. Calls were also made for a review
of judicial sentencing and for free and rapid access to legal
services to be available.
23. NORTHERN
IRELAND MEMORIAL
FUND
23.1. Some aspects of the Fund were praised,
eg that it had been helpful with home adaptations and is generally
a good vehicle for small amounts of government funding to be given
to victims. However some felt that there was a need to review
criteria and change rules. For example, people should be able
to apply more than once under the same scheme and siblings of
victims should be able to access the Fund.
24. GREAT BRITAIN
24.1. It was suggested that victims in Great
Britain should receive equal treatment to all other victims and
that they needed an embryonic support group.
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