Final Equality Impact AssessmentReport

which has informed a revised layout for the

CRUMLIN ROAD GAOL AND GIRDWOODPARK

DRAFT MASTERPLAN

Executive Summary

This report presents the results of an Equality Impact Assessment (EQIA) carried out by the Department forSocial Development’s (DSD) North Belfast Community Action Unit (NBCAU) on the Crumlin Road Gaol/Girdwood Park draftMasterplan, and follows from the draftreport that was issued for public consultation in October 2008.

The draftEQIA can be accessed from the NBCAU website at .The draft EQIA detailed the information that was reviewed, identified potential adverse impacts and offered preliminary recommendations as to how the policy could be modified to mitigate adverse impacts.

A total of 28 responses to the draftEQIAwere received, from a range of representative bodies and one individual. Issues raised have been considered alongside existing data in coming to the final decisions as presented in this final report.

We believe that the proposed actions will further promote equality of opportunity between all Section 75 groups as well as helping promote good relations within the local area, and we would like to thank all those who have contributed to this EQIA.

This report examines the issues at a strategic level and in light of responses to the EQIA, the preferred way forward is to advance the Masterplanin a staged or incremental manner. The experience of successful implementation at each stage willhelp build good relations between local communities and so increase the chances of success for later projects. In this way, the climate for resolution of more contentious issues attached to the Masterplan may be improved over time. The EQIAis at a strategic level at this stage and an incremental approach will provide the opportunity for more systematic and focused data gathering to help inform future decision-making. Each element of the emerging Masterplanwill be the subject of an Equality Screening/EQIA.Such steps will help address the concerns raised by a number of consultees regarding the adequacy of existing data.

To begin this process it is suggested that while no element of the Masterplan shall be abandoned,the preliminary recommendations regarding measures to mitigate adverse impact will continue to guide implementation in general terms. The refurbishment of the Crumlin Road Gaol should be afforded immediate priority, given that this is a project that enjoys support across all communities. The development of this element of the Masterplan will be underpinned by further Section 75 screening and EQIAs as appropriate, together with continuing community engagement, and will hopefully set in train a process that can then be extended to other projects linked to the GirdwoodParksite.

The original layout proposed for the Crumlin Road Gaol/Girdwood Park draft Masterplan is shown at Annex A.The proposed revised layout of the draft Masterplanis outlined in the illustration on the covering page and in more detail at Annex B.

Further copies of the EQIAare available on our website at

If you have any queries about this document and/or its availability in alternative formats (including Braille, disk and audio cassette, and in minority languages to meet the needs of those who are not fluent in English) then please contact:

North Belfast Community Action Unit

Crumlin Road Gaol

53-55Crumlin Road

Belfast

BT146ST

Telephone: 028 90358100

Fax: 028 90358150

E-Mail:

Introduction

Section 75 of the Northern Ireland Act 1998 requires that DSD shall, in carrying out its function relating to Northern Ireland, have due regard to the need to promote equality of opportunity between the following nine Section 75 groups:

• Persons of different religious belief, political opinion, racial group, age, marital

status or sexual orientation;

• Men and women generally;

• Persons with a disability and persons without; and

• Persons with dependents and persons without.

In addition, and without prejudice to these obligations, DSD is also committed to the promotion of good relations between persons of different religious belief, political opinion or racial group.

DSD’s Equality Scheme, found at approved by the Equality Commission for Northern Ireland in March 2001. This scheme sets out how DSD will continue to fulfil the statutory duties determined through Section 75 legislation and its implementation. It also acknowledges the commitment to carrying out Equality Impact Assessments (EQIAs) as and when appropriate.

In keeping with its commitment to Section 75, in the autumn of 2008 DSD carried out an EQIA on the emerging Crumlin Road Gaol/Girdwood Parkdraft Masterplan,including the various elements that made up the Masterplan at that time. This EQIA was undertaken on the clear understanding that as the Masterplan continues to evolve, further assessments will need to be carried out on each element to ensure that the promotion of equality of opportunity and good relations continues to be afforded due regard.

The draft EQIA on the draftMasterplanproposals was published on 29 October 2008 and ended on 20 January 2009.

This report presents the final results of the EQIA, reflecting on the feedback gathered during this consultation period.

Draft Equality Impact Assessment

The potential redevelopment of the Crumlin Road Gaol/Girdwood Park site is seen as a vital component in triggering wider physical, social and economic regeneration in North Belfast. This is captured in the mission statement of the Advisory Panel which states that the objective of the project is:

“To create a regeneration project of international significance which brings maximum economic, social and environmental benefits to the local and wider community and in doing so creates a vibrant, inclusive and diverse environment which attracts present and future generations of people to live, work and visit.”

The future of the Crumlin Road Gaol and GirdwoodPark has enjoyed a lengthy period of consultation, now spanning over seven years. This included an intense period of public consultation on the proposals contained in the draftMasterplanbetween 16 October 2007 and 22 January 2008, which garnered over 900 responses. A summary of these responses can be found on

Initial Recommendations to Mitigate Adverse Impact

A wide range of data and research was summarised in the draft EQIA consultation document. This information was then used to draw up a number of measures to mitigate potential adverse impacts that may attach to the emerging Masterplan. These key preliminary recommendations are summarised below:

  • The site must be developed in a way that will attract businesses, investment and visitors into the area to create wealth and jobs. Hence the project should prioritise issues such as increased employment, tourism, health provision and the potential for improved educational facilities and accessibility to crèche facilities.
  • The provision of housing, particularly social housing will have an impact in addressing local housing need although the provision of such housing must reflect the needs of all communities living in the area.
  • The development of the site should seek to address the concerns and needs of all the communities living in the area. In an attempt to challenge the sectarianism of the past, the preference is to provide shared space on the site. While welcome in principle, this development must proceed mindful of local circumstances and may have a greater chance of success among the elderly population.
  • Multiple access routes to the site from both sides of the community may assist in ensuring that the site is open to all regardless of religious belief or political opinion.
  • More access routes to the Leisure/Community Hub in particular could assist in making the Leisure/Community Hub accessible to both communities. More generally it is recommended that the body responsible for the proposed Leisure/Community Hub must ensure that in delivering programmes, policies and projects it seeks to identify opportunities to promote equality of opportunity and good relations.
  • Cross community dialogue is essential for the appropriate development of this site and will ensure that the equality needs of all communities are fully recognised and incorporated in this important regeneration project. In order to achieve the objective of developing the site as shared space, the following specific measures may need to be considered:
  1. Locating part or all of the housing accommodation to specific parts of the site.
  2. Reconsider the draftMasterplan proposals in relation to the roads and traffic flows, and firm up on the detailed design to ensure traffic management measures will be put in place to ensure access for all communities.
  3. First phase development could focus on economic development of tourism at the Gaol as a means of creating a shared space, job and wealth creation.
  4. An employment and skills training outreach programme should be established, encouraging people from the local communities to work on the site.
  5. Setting up an implementation body, consisting of a range of stakeholders including the local community to develop the site.
  6. Working with local communities and stakeholders to develop a shared housing scheme targeted at perhaps older people and families.
  7. Emphasis on safety in the public realm for all sections of the community using and accessing the site with practical measures such as good street lighting and open spaces.
  8. Improved public transport into and throughout the site (also providing social economy opportunities) as well as environmentally friendly and sustainable transportation routes.
  9. Taking account of the views of young people in designing facilities and services.
  10. Incorporating employment targets in the development of the site and provision of services for people who are unemployed.
  11. Creating opportunities for social economy projects from both communities and cross community.
  12. Creating a focal point for the provision of some community services and organisations required by all in the area.
  13. Creating awareness of facilities and opportunities for communities through an education programme with local schools, conference and meeting facilities available to local organisations.
  14. Events provided or requested by organisations to serve the local communities.
  15. With regard to housing, the provision of a development brief for private housing to stipulate that a percentage is affordable homes mainly targeting ‘first time buyers’.

Written and Verbal Submissions to the draft EQIA Report

NBCAU received 28 written responses to the draft EQIA. One was from an individual while the remainder were from representative bodies with an interest in the proposals for the site. A summary of the key comments/issues received is presented below, together with our response. Full copies of all responses are available on the internet at .

Summary of Comments and Agreed Actions

Respondent / Comment received / Response
Bryson
Charitable
Group / The Masterplan policy does not take into account the potential to improve relations with minority ethnic groups (e.g. Indian, Chinese, Jewish, eastern European). / Ongoing consultations will ensure continued engagement with representatives from these communities and other representative groups (e.g. Northern Ireland Council for Ethnic Minorities, Chinese Welfare Association).
Dr John Dunlop / There should be an agreed plan for multi-use facilities with the involvement of all interested parties, to serve as a symbol of hope and economic regeneration for North Belfast. / The Masterplan will continue to explore possibilities for a multi-use site and involve all parties in consultation.
Social Democratic and Labour Party / Supportive of the findings of the EQIA but believes that phasing which does not place housing development at the heart of the first phase would deprioritise housing. Hence would favour simultaneous development. / Issues that may be attached to the phased introduction of the Masterplan are noted.
North Belfast Senior Citizens’ Forum / Needs of older people are not acknowledged in the Masterplan e.g. transport. Need to bring hospital car parking closer to the facility itself. Shared housing for older and disabled people should not be used as a buffer zone between warring factions. Rethinking of land allocation to St Malachy’s may release more space for housing and leisure. Theatre for the area? Need more information e.g. housing allocations, transport, extension to Mater. / Various concerns of older people are noted and will continue to inform ongoing developments of the Masterplan.
Sinn Fein / EQIA has been carried out without an Equality Analysis, hence fundamental flaw in the process. The plan has not considered how proposals may promote equality of opportunity or good relations. Need to specify how target groups will be affected by proposals with regard to economic development and leisure. Inequality in housing identified but proposal for shared housing only meets good relations duty and not the promotion of equality of opportunity. Health proposals not based on statistics regarding mental health and alcohol abuse. Vague and undefined proposals do not seem to target inequalities. Need for final EQIA to ‘recognise all of the respective objective needs outlined herein, and to recommend appropriate amendments and other specific options to tackle the inequalities faced by s75 groups’. / Other stages in development will accommodate perceived inequalities between s75 groups in surrounding wards. Further equality analyses will be used to bring forward specific elements of the Masterplan.
Bridge of Hope (Ashton Community Trust) / Health inequalities in relation to gender are mentioned in EQIA but no reference to other 8 groups. More data on health issues (e.g. drug use, victims, suicide risk, mental health) will be needed to inform development of the Masterplan. / Further statistics regarding general health inequalities in the area will be gathered and used to inform the emerging Masterplan with regard to health issues.
Brucevale Residents / Needs further detail of how housing inequalities will be reduced, and including targeted number of 2, 3 and 4 bedroom homes, to address perceived growing need over the next 3 years. More data on dependency needs in the area and housing to reflect this profile (e.g. more apartments may increase inequality if this reduces 2, 3 or 4 bedroom provision). 4-7 storey buildings may have an adverse impact on s75groups. / Detailed consideration of local housing need in relation to dependency, family size and mobility will be reflected in the emerging Masterplan with regard to housing.
St Malachy’s College / Existing College site area is significantly below the standard recommended by DE (66% below). / No s75 concerns raised but educational needs of the area will be reflected in the emerging Masterplan.
North BelfastPresbytery / Concern that 6.49 – 6.51 appear to preclude Protestant social housing. If implemented the whole site may appear nationalist. Housing to be built for Mater employees. Social housing moved from Cliftonpark Avenue to the centre of the site. Frontage of Cliftonpark Avenue to be redesigned. Contiguous areas to be redeveloped to ensure maximum buy-in from all communities. Emphasis must shift to building a new community. / Specific concerns regarding the perception of the area as belonging to one community to be addressed in emerging Masterplan. Specific proposals to be considered within the broader context of the emerging Masterplan.
Belfast Health and Social Care Trust / Trust welcomes the extensive consultation attached to the EQIA and sees the EQIA as robust. Need to focus on cross community work and including minority ethnic groups. Trust would welcome involvement in future discussions regarding shared space and access. / Comments noted and future engagement will inform the emerging Masterplan with regard to health issues.
Ashton Community Trust(Education) / EQIA does not present detailed analysis of educational inequalities in North Belfast, including adult education or academic attainment. Inequalities relating to most s75groups ignored. St Malachy’s proposals are not examined in relation to s75. / Further statistics will be gathered in relation to education and will be used to inform those elements of the Masterplan relating to education.
Ashton Community Trust (Employment) / EQIA does not provide proper analysis of employment differentials in North Belfast. S75groups ignored except gender. Barriers to employment must be addressed. Disadvantaged s75 groups must be identified to target training, outreach work etc. EQIA must show how employment inequalities will be addressed. Forum must be established to deal with employability and training. / Further statistics will be gathered in relation to employment and disadvantage and will be used to inform those elements of the Masterplan relating to employment and training. Establishment of a forum on employability and training will be considered.
Cliftonville Community Regeneration Forum / EQIA provides insufficient evidence to enable a comprehensive Masterplan to address existing inequalities in North Belfast, e.g. employment. Weak evidence base. Need for targeted approach to on-site training and apprenticeships. Social and community enterprises should be established and supported through e.g. community enterprise centre. Lack of fulsome analysis of employment inequalities. / As each individual project of the Masterplan is developed this will be the subject of Equality Screening/EQIA as appropriate. At this stage there will be more detailed analysis of employment inequalities in the area and this will inform those elements of the Masterplan relating to employment and training.
Lower Shankill Community Association / Misrepresentation of the LSCA e.g. focus group and LSCA audit document. EQIA does not help promote equality of opportunity e.g. education, employment and health disadvantage. More specific targets for local employment needed. Outreach work, training, apprenticeships etc. to be included as mitigating measures. / As each individual project of the Masterplan is developed this will be the subject of Equality Screening/EQIA as appropriate. At this stage there will be more detailed analysis of health, education and employment inequalities and this information will inform those elements of the Masterplan.
North Belfast Forum for Housing Action / Need for comprehensive analysis of housing need by all s75groups to target most vulnerable people. EQIA fails to show how housing inequalities will be addressed by shared housing. / Conduct detailed statistical analysis by s75 groups of local housing needs before bringing forward housing proposals. This will be used to inform those elements of the Masterplan relating to housing need.