Democracy, Governance and Governmentality: the Role of the Voluntary Sector in the Democratic Renewal of Northern Ireland
by John Morrisson
Of course it is important not to view the sector as a monolith, and in particular there are significant (if somewhat blurred) distinctions between the voluntary sector and the community sector. The voluntary sector can be viewed generally as being larger, more established and better organised and with closer links to government - even if only in terms of funding. In contrast to the more professionalised voluntary sector, the community sector tends generally to be more locally organised and oriented and run by volunteers. There are also perhaps distinctions between the community relations approach, stressing tolerance of difference and improving understanding between two communities, as opposed to the community development approach which emphasises the revitalisation of economic and social infrastructure.13 It is important also not to view the relationship with Government as always being one of mutual co-operation and satisfaction. Very positive features, such as for example the Targeting Social Need initiative introduced in 1991 or the earlier introduction of the Department of Economic Development's Action for Community Employment (ACE) scheme which provided a significant fillip to the sector, must be balanced against more negative aspects such as criticism of how TSN was organised and the notorious Hurd Criteria where Government sought to control those bodies to whom financial assistance was given via ACE on the basis of political vetting.14
However, expressing it at its strongest, direct rule presented parts of the sector with an opportunity to engage in a relationship with the Northern Ireland Departments and other structures of direct rule. Government engaged in dialogue with non-governmental organisations about policy and empowered them to deliver services and advance conflict resolution strategies. Of course there always remained an imbalance in the relationship in so far as Government generally was the funder and the sector was in the role of applicant. However, there were alternative funders too and a range of other arenas where politics could develop. A variety of other, non-domestic government bodies played a very significant role in allowing another politics to grow up by underwriting the role and development of the voluntary sector. European institutions and structures in particular afforded the voluntary sector opportunities to bypass domestic government institutions and engage in politics on different terms. The role of various human rights non-governmental organisations in lobbying various international bodies around state infringements of the European Convention on Human Rights provides an example of this. The role of NICVA's European Affairs Unit in making recommendations as to the structural funds plan for 1995-99 which itself contained two Measures of Community Infrastructure in its Physical and Social Environment Sub-Programme provides another example of how the sector can by-pass domestic state structures and become involved in using the "external constitution" to progress its agenda. The role of the sector in the District Partnerships established by the European Special Support Programme for Peace and Reconciliation with its budget of 44.2 million ecus with matching government funding indicates too how successful the sector became in enmeshing itself in governance at all levels.15 At its very highest this may have amounted to a sophisticated form of governmental dialogue or a "communicative constitutionalism" where the sector was one important element among the many involved in governance in Northern Ireland.16
1 See further A. Williamson "The Origins of the voluntary action in Belfast" in Voluntary Action and Social Policy in Northern Ireland N. Acheson and A. Williamson (eds.) (Aldershot, Avebury, 1995) pp.161-180.
2 J. Schense "Creating Space for Change: Can the Voluntary Sector Help end Northern Ireland's Troubles?" (1998) 11 Harvard Human Rights Journal 149-85.
3 During a speech at the AGM and Conference of the Northern Ireland Council for Voluntary Action, Belfast, 20th June 1997, Dr Mowlam suggested that there are over 30,000 full time equivalent staff in Northern Ireland and more than 65,000 volunteers. (See http://www.nio.gov.uk/
>
press/970620cc.htm>>). An economist estimates that the scale of government assistance exceeds £150 million per annum and that the services provided by the voluntary sector, in market terms, might be valued as over £200 million - nearly 2 per cent of GDP. (See further J. Simpson "Government financial support for voluntary sector organisations: a preliminary analysis and discussion" in N. Acheson and A. Williamson (eds. supra n. 21) pp. 181-193.)
4 See also NICVA, The State of the Sector II: Northern Ireland Voluntary
Sector Almanac 1998 (1998) and Department for Social Development, Consultation
Document on Funding for the Voluntary and Community Sector (April 2000)
which suggests that the sector provides employment for 33,000 people and
has a gross annual income of £500 million. |
