Consultation Paper on a
Victims’ Strategy
Submission by Democratic Dialogue
on the Consultation Paper on a Victims’ Strategy
9 November 2001
1. Introduction
This document is Democratic Dialogue’s
response to the Consultation Paper on a Victims' Strategy made public on the 6th
of August 2001 by Mr Dermot Nesbitt
and Mr Denis Haughey, MLAs
in the OFMDFM with responsibility for victim issues.
Democratic Dialogue is Belfast’s first
think-tank organisation focusing on policy formation in Northern Ireland.
Democratic Dialogue’s response to the Consultation Paper is part of a wider
project we are undertaking focusing on victim-related policy issues in
2001/2002. As such, the opinions of a number of role-players in the sector were
sought in the writing the submission.
In addition, on Tuesday the 23rd
of October 2001, Democratic Dialogue held a Roundtable discussions aimed at
exploring the questions raised in the Consultation Paper. A number of papers
were presented and detailed discussion held. The papers presented are available
on request.
2. Structure of the Submission
This submission begins with some broad
points about context and outlines Democratic Dialogue’s approach to the issue
of developing a Victims’ Strategy. We argue for a very specific approach that
attempts to disentangled some of the current blockages within the so-called
‘victims debate’. The approach we argue for under 3., is then used to
inform our responses to the questions posed in the Consultation Paper.
3. Developing a Comprehensive
Strategy: A Proposal
The current context in which the issues
relating to so-called ‘victims’ of the conflict are being dealt with is
difficult and complex, a point acknowledged in the Ministerial Forward to the
Consultation Paper. Furthermore, the issue of dealing with the victims of
conflict is, and has always been, a highly politicised issue. This is
inescapable as it is political by its very nature. To this end, Democratic
Dialogue appreciates the sentiment expressed in the Consultation Paper that one
‘cannot afford to shy away from’ the issues involved in meeting the needs of
so-called ‘victims’.
As the OFMDFM knows, there is much
suspicion (and at times animosity) between and within so-called ‘victims’
groups, the statutory sector and the voluntary sector (this is dealt with in
more detail under 4.7). There is competition for resources, not to
mention the ongoing struggles over the definitions of concepts such as
‘victim’. This seems to be fuelled by an anxiety that such definitions will be
narrowed in one way or another resulting in the sidelining of specific
interests. There is a powerful perception in some sectors that victim-related
issues were only put on the agenda in order to attempt to balance a process of prisoner
release. The entire debate at its core is also profoundly about the issue of
the acknowledgement of wrongdoing and suffering, a point to which we will
return later.
At the same time, it would be unfair to say
that nothing has been done to address these problems. Funding has been made
available and a proliferation of so-called victim-related projects and
government responses have ensued, including the Victims Unit in OFMDFM which
seems to have received broad acceptance from most groups and political parties.
Some very creative community-based projects aimed at healing have been
developed, various statutory initiatives attempted and the very fact that an
interdepartmental strategy is being developed can only be seen as positive.
However, Democratic Dialogue is of the
opinion that in order for a comprehensive strategy to be developed and
implemented, the historical context — and current state of affairs as briefly
outlined — need to be used as backdrop, albeit a fragmented and fraught one,
for understanding and developing any new strategy.
To this end, the values and ethos mentioned
in the Consultation Paper are welcomed. However, Democratic Dialogue is deeply
concerned with how the work in this area, and any governmental strategy, can
best address the needs that are clearly out there without further polarising
the sector and/or adding to the confusion about the proliferation of services,
bodies and Units set up to serve the needs of those most affected by the
conflict.
We feel that any new strategy needs to
begin by returning to the fundamentals of the real issue at hand and how best
this can be addressed, rather than simply building on the momentum of a process
which, in part, has caused as much division as it has attempted to address.
Many speak of about the ‘needs of victims’
as if understandings of these needs are commonly shared — yet, our interaction
with groups suggests that people have very different understandings and
perceptions of the same issues.
Correctly the Consultation Paper notes that
the needs of victims are varied and can change over time. Encouragingly the
Paper also highlights that needs stretch beyond the boundaries of
health-related concerns to the education, housing and social sphere.
However, in analysing the Consultation
Paper carefully we feel that it leans towards dealing with and offering what
can broadly be termed services to those, and their families, who have survived
violent conflict-related incidents. This reinforces the assumption — with or
without intent — that all needs of victims of conflict related violence can be
dealt with by offering individuals improved and extensive services. Individual
services are critical and we support them, but feel service delivery needs to
be placed within a wider context and take cognisance of a range of other issues
that are impacting upon it. This is also important because in some cases whole
communities and not just individuals have been affected.
For the sake of simplicity, we would like
to argue that when developing a comprehensive strategy to deal with those
affected by the conflict it should be recognised that two related — but in many
ways distinct — kinds of needs must be dealt with.
The first we can describe as the psychosocial needs of those who were affected by conflict
related incidents, i.e. dealing with the physical, psychological and social
needs of those affected through strategies such as counselling, befriending,
assistance with housing benefit, compensation, social support, etc.
The second can be described as what we can
call the historical legacy needs related to the conflict. This is not
about services or physical forms of support at all, but is primarily about
issues such as acknowledgment of wrongdoing and
suffering, the drive by those affected to clarify the circumstances of certain
violations, justice and remembrance, as well as the feelings that some
of those affected have of marginalisation, fear and
exclusion.
From the so-called victims’ perspective
these two issues are not separate and their healing is dependent on both. We
could also talk about the entire psychosocial needs
of communities. However, from a policy perspective we feel the distinction we
have made between the two kinds of needs is necessary and useful in
disentangling some of the current blockages in the so-called ‘victims debate’
as it currently stands.
To this end, we believe on reflection that
the Consultation Paper deals primarily with the first issue, i.e. the concern
with services to so-called ‘victims’. However, dealing with the historical legacy
of the conflict is more complex. Clearly, offering accessible and appropriate
services and support through a range of departments will meet some of these
needs at the individual and community level — but services and support will
never be sufficient to meet the needs of those affected with regard to
acknowledgement, justice, truth-recovery and remembrance. Democratic Dialogue
is of the opinion that unless these two processes are separated out at a
policy-level (and both dealt with), the latter issues will dominate the former
and the issues will become conflated and difficult to disentangle.
We feel this is what is currently happening
with, for example, so-called ‘victims groups’: the public and politicians
seeing the funding of services and support — rightly or wrongly — as being tied
up with the issue of official acknowledgement of their suffering. This feeds
into the often-mentioned debate of ‘deserving and undeserving victims’, or the
‘hierarchy of victims’.
In fact, we would go so far as to argue that
term ‘victim’ has become inextricably linked with the conflicting
interpretations of the process of acknowledgement and the historical legacy of
the conflict, and as such should be abandoned at a policy level as a way of
identifying and talking about the debate.
Thus, if one was truly to design a
comprehensive strategy to meet the needs of the "surviving physically and
psychologically injured of violent conflict related incidents" — a very
helpful phrase used in the Consultation Paper — we are firstly of the opinion
that any overall strategy at this stage should move away from the language of
addressing ‘victim issues’. The issue has become too politically loaded and has
lost any specific meaning, in fact meaning fundamentally different things to
different people. Thus, we propose the strategy become a ‘Strategy to Address
the Impact of Conflict Related Incidents of Violence’ and not a ‘Victims’
Strategy’ as such.
Furthermore, if we are to understand the
needs of those who have been affected by the conflict in a more holistic way
(and in line with our analysis above) we feel two distinct (but related)
programmes need to be considered — namely a ‘Programme to address Psychosocial Needs’ and a ‘Programme to address the
Historical Legacy of Violence’.
In terms of the Consultation Paper we feel
most of the issues discussed (e.g. service provision, support, etc.) fall into
the former. Clearly, much more thinking needs to go into what issues should
fall under the latter and designing strategies to address issues such as
acknowledgement, justice, and remembrance are incredibly difficult, albeit
vital, in societies in transition.
Our suggestion would therefore be to rather
narrow the focus of the current strategy exclusively to a plan to address the psychosocial needs of those affected by the conflict. We
feel this is more consistent with the main thrust of the Consultation Paper as
it stands. To purport that the strategy will deal with all ‘victims needs’ at
this stage will only create further animosity and division because for many who
have been affected some of these needs extend beyond what the Consultation
Paper seems to be currently proposing.
Nonetheless, if this approach was taken, it
would need to be unequivocally acknowledged that although the offering of
services can help, a strategy aimed addressing the psychosocial
needs will not completely deal with the broader issues of acknowledgment
of wrongdoing and suffering, the drive to clarify the circumstances surrounding
certain violations, justice and remembrance, or even result in complete healing
for many who have suffered. We feel it would be correct to voice this so as to
dispel the assumption that no matter how comprehensive and well-implemented the
‘victim strategy’ is, it will not address all the needs of those
affected.
Therefore, we would advocate that a process
for discussing the ‘historical legacy’ issues such as acknowledgement, justice
and remembrance needs to begin at least within Assembly structures. We
understand some of the issues fall within the remit of the NIO (at least at a
practical level), but they are critical to developing a comprehensive strategy
and discussion on them needs to, at the very least, be opened up. However, from
a policy perspective — at least at this stage — we would recommend keeping
these debates as separate as possible from the process of initial service
delivery.
We firmly believe that the issues such as
acknowledgement, justice and remembrance need to be addressed in some way for
there to be true resolution of the conflict for those affected (not to mention
the society at large). In the healing process these issues are not separate
from the delivery of services to those affected, and they are delineated here
for policy-making purposes. Dealing with the ‘psychosocial
needs and ‘historical legacy issues’ can happen through community attempts to
deal with them, but ideally should also be issues that Government attempts to
address both through its structures and in partnership.
4. Questions posed in the
Consultation Paper
It is within the arguments outlined above
that we have attempted to present opinions on each of the questions in the
Consultation Paper.
4.1 How best can
the Inter-Departmental Working Group on Victims interact with victims and their
representatives (section 4.3)?
In line with our above arguments, we
believe that the working group should be renamed the Inter-Departmental
Working Group on the Impact of Conflict Related Incidents of Violence. Its
main focus at this stage, as is outlined in the Consultation Paper, should
remain the development of a co-ordinated approach to the delivery of services,
awareness raising of the needs of those affected by the conflict and an
examination of funding issues. However, we believe it should be clear that it
is only dealing with these service delivery issues at this stage in detail.
Nonetheless, it is recommended that the
IDWG begin to discuss how the ‘historical legacy issues’ can be dealt with. We
recommend that the IDWG discuss and design a process as to how the Assembly can
begin to address issues such as acknowledgment of
wrongdoing and suffering, clarifying the circumstances surrounding certain
violations, justice and remembrance as components of the dealing with the
multiple needs of those affected by the conflict. We are aware that some of
these issues in operation may fall within the remit of the NIO, however, we
feel the IDWG (and ultimately the Assembly) needs to consider the issues and
discuss how they can be resolved and integrated with the evolving strategy being
developed.
In terms of services, we are very
supportive of the inter-departmental working group approach. The group should
interact with those affected by the conflict — and with service providers —
primary through an Advisory Committee made up of representatives from
various local Psychosocial Support and
Advisory Panels (see below, formerly Trauma Advisory Panels). Four
representatives (two from the voluntary and two from statutory sector) would be
elected by local Psychosocial Support and
Advisory Panels to sit on the Advisory Committee (16 members). The Advisory
Committee would have direct access and communication with the IDWG, the
OFMDFM and ultimately the Assembly.
The local Panels could take their
structure, and geographical spread, from the process begun through the
establishment of Trauma Advisory Panels. However, the Trauma Advisory Panels
should be reconstituted through a public appointment process and in line
with the thrust of the strategy proposed here and be referred to as Psychosocial Support and Advisory Panels. It
is proposed that the term ‘psychosocial support’ be
used instead of ‘trauma’ as ‘trauma’ is often seen as a term associated
exclusively with psychology and psychiatry, whereas psychosocial
implies all sectors that can offer support including social services, housing,
health, etc,. These Panels should be made up of
so-called ‘victim groups’, community and voluntary organisations, and statutory
service providers (from across the board) who offer support to those and their
relatives who have been affected by the conflict.
Diagram of proposed structure not
available in web version, for hardcopy email mail@brandonhamber.com
4.2 Does the draft Action Plan contain
meaningful targets, the implementation of which will lead to a noticeable
improvement in the services provided for victims (section 4.6)?
The Action Plan contains a number of useful
and interesting steps, some of which could definitely improve service
provision, and most we would welcome if implemented.
However, we feel the reasoning behind the
inclusion of certain issues and how these relate to a broader strategic vision
are not clear. In fact, many of the action steps read as objectives, rather than
specifically as actions.
Thus, our main point is that the plan as it
stands seems to be going in a range of directions without any clear strategy
behind it. It seems to be attempting to deal with (using the analysis we posed
above) both the ‘psychosocial issues’ and the
‘historical legacy issues’ simultaneously, but not in any coherent fashion. The
plan, in our opinion, would be better structured if some issues were placed
under a heading of ‘Psychosocial Support’ and this
would include items focusing on housing support, counselling, small business
development skill development, etc., and others under ‘Dealing with the
Historical Legacy’, or at the very least other sub-headings such as
‘Acknowledgement’, ‘Commemoration’ and ‘Justice’.
We also think there is too much focus on
the issues of re-skilling at the expense of dealing
with the specific mental health care needs of individuals. International
experience teaches that dealing with long-term impact of violence on
individuals cannot simply be overcome by attempting to get them employed, or to
access more housing benefit, for example. Although, these are vitally important
and it is commendable that they are there as they show a holistic understanding
of the impact of violence, there needs to be more focus in the plan on the
long-term physical and psychological needs of those who have suffered as a
result of a violent incident. International experience and research suggests
these needs linger for decades and require both statutory and extensive
community-based intervention.
From another angle, and in light of our
earlier analysis, we feel the justification and understanding of including
certain issues in the Action Plan needs to be carefully scrutinised. Above we
made a distinction between the ‘psychosocial needs’
of those affected and the ‘historical legacy issues’ and some of the issues
mentioned in the Action Plan (such as steps focusing on memorials, story
telling, etc.) would fit with the latter. However, in order for it to be
useful, the reasons for dealing with these ‘historical legacy issues’ and not
others (say, mentioning other documentation projects such as the BBC ‘State
Apart Series’, or the Legacy Programmes as a form of storytelling, or
supporting community-based storytelling and commemoration) would need to be
justified in the final strategy document.
This is again reinforced by issues in the
Action Plan from 21.-25. about young people. With these particularly, it
is not clear as to which issues some of the recommendations are being
addressed, e.g. are the parenting skills related directly to those who suffered
as a result of the conflict, or just in general?
On a separate issue, point 19. about
inquest papers and whether counselling be offered — the idea of carrying out
further research would be a waste of resources; as there are no doubt studies
out there which would justify supporting people who would go through such a
process.
In conclusion, the question asks about
‘noticeable improvements in the services’ and some of the suggestions made no doubt
will help. However, some issues such as the storytelling, or memorial
suggestions — as much as we would be in favour of such programmes — are not
about service delivery at all, making answering a question about improved
service delivery impossible. This reinforces our earlier points that the
strategy needs be clear as to what issues in relation to those affected by the
conflict it is attempting to address, i.e. psychosocial
support and/or historical legacy issues. If the latter is included this needs to
be more delineated and contextualised in the entire
strategy.
4.3 Are there targets or target
areas which should be included in the draft Action Plan which currently are not
(section 4.6)?
This is a difficult question to answer as
in many senses it depends on the approach adopted by the overall strategy. If a
narrow focus is taken focusing on service delivery, there are many areas that
need to be considered, for example, the training of GPs, community nurses, and
other allied professionals in offering support and appropriate referral; an
evaluation of the role of interdisciplinary teams within the health care
service and their support to those affected by the conflict, and processes
being set up (and evaluations) of necessary community programmes to address the
needs of people. In addition, one would also need to think of other types of
services and whether these need to be offered to those who see themselves as
affected by the conflict, including the provision of structures which can offer
legal advice and social assistance.
However, if one sees the strategy as
dealing with the ‘legacy of the conflict issues’ then the door is wide open for
many different initiatives — a plethora of examples and suggestions can be
found in reports of several truth commissions, such as those in Chile and South
Africa. These might include, among other things, curriculum development and how
the impact of the conflict is explained and historicised
for learners (this is largely captured in 20. of the action plan); the
role of Government bodies in breaking down intolerance and stigma attached to
‘victims’, this may require careful scrutiny of the usage of the very term
‘victims’ and other loaded terms such as ‘criminal victims’ or ‘terrorist
victims’; cultural acts aimed at reconciliation and commemoration strategies
such as new shared days of remembrance or memorials could be considered; as
well as developing strategies to teach human rights so as to ensure
non-repetition.
Again, in line with earlier arguments, any
of the examples above — or gaps — would only be useful if part of a
comprehensive strategy with a clear statement of what issues it is trying to
address.
4.4 How can funders
make the funding process easier to understand and access (section 4.7)?
The issue is not only about making funding
processes more accessible using approaches such as meeting ‘plain English’
standards, distributing calls for funding widely and holding community
information sessions — it is also about understanding the nature of the work to
be funded. We believe that the funding of support work to psychosocial
related programmes for those affected by conflict poses a number of
difficulties for traditional funding processes. Most of the aims of the
projects funded are not easily quantifiable — impacts of successful projects
are generally qualitative such as a ‘greater sense of inclusion’, ‘feeling less
anxious’, ‘feeling more resolved’.
Consequently the work of such programmes
rarely fits traditional funding language of ‘outcomes’ and ‘indicators’. The result
is that those applying for funding try to and tailor their applications to fit
that agenda when the funders and those funded know it
is not really adding up. To truly understand the work, and design funding
processes suitable for funding this type of work, much more work needs to be
done in understanding the nature and extent of support that is being offered.
Funding agencies need to make more use of ‘field workers’ who can gather what
can be termed ‘thick’ descriptions of community projects. Community-based
projects need to also be empowered to explain and document what they do. It is
only when we get this right that the funding cycle will be better understood by
those funding and those funded — resulting in increased understanding and
access.
4.5 What other
methods can be used to raise awareness of victims’ issues (section 4.9)?
The establishment of the structures (and
the public appointment processes) as suggested by our submission — as well as
some of the suggestions in the Action Plan in the Consultation Paper (e.g.
including so-called ‘victims’ in all consultations) — would by their nature
raise awareness about the issue. However, in line with our earlier analysis, we
would suggest that the issue of how and what is conveyed to the public about
the issue be considered more carefully and attempts made to remove some the
qualifying statements that are attached to victims (i.e. the deserving and
undeserving victims debate).
To this end, it may be useful for the
Victims Unit to produce a public document, which, based on the work that has
already documented the impact of the conflict, outlines the main parameters of
the impact of the conflict on those affected. In fact, the entire first
component of any comprehensive strategy should be based on such foundation. It
may be useful to get the Assembly to ratify such a document to ensure that it
is officially acknowledged that many people are still suffering from the impact
of the conflict very directly.
4.6 What statutory sector
partnerships need to be developed (section 4.11)?
One of the key areas where partnerships
need to be developed would be between different agencies. The Consultation
Paper moves towards this in recognising the importance of education, housing,
health and social service issues for those affected by the conflict. This is
reinforced by the moves towards trying to establish an IDWG. However, such a
process needs to be matched by localised working forums and partnerships
between the same role-players.
The South African process of developing a
Victim Support Programme for Victims of Crime under the National Crime
Prevention Strategy provides a useful parallel. The strategy argued for an
inter-departmental committee to deal with the issues. This was set up at a
national level — and although a number of joined-up and creative programmes and
policies were recommended many of these were not implemented as similar
localised structures were not in place.
4.7 How best can the statutory
sector work in partnership with the voluntary/community sector (section 4.12)?
It is encouraging that the issue of
statutory and voluntary interaction is highlighted because partnership between
the two is vital. Nevertheless, it is important to move from a base that
acknowledges substantial levels of mistrust between the sectors. Almost all
community and so-called ‘victim groups’ will voice the opinion that the
statutory sector has failed in its responsibility in the past to meet the needs
of those affected in the conflict. The statutory sector, if one is to be general,
most often retorts that it did what it could within the context and is
suspicious of the quality of services that community groups offer and offered.
There are also difficulties and strong differences of opinion within the
statutory sector. Whether these perceptions are right or wrong, a gap exists
between service providers at a number of levels.
Thus, the starting point for building
lasting partnerships is to deal with some of these issues in a constructive
manner — forums need to be created where constructive discussion and reflection
can be held.
At the same time, various structures can
support this process and practically begin developing such partnerships. This
relates specifically to the suggestions of having an Advisory Committee
and local Psychosocial Support Advisory
Panels (see suggestions in 4.1) made up of representatives from both
sectors. Importantly, however, all people on these panels should be selected
through public appointment processes to ensure maximum participation and a legitimation of these bodies.
4.8 How best can those who carry
out or commission research engage with victims to ensure that relevant research
is carried out and followed up on (section 4.15)?
There is much that could be said about the
process of engaging in research with those affected by the conflict. On one
level, the process of research with such individuals should be no different to
that of any other research process, i.e. all research should be passed through
an ethics process, subjects’ participation should be voluntary, principles of
confidentiality should be respected, all those researched have a right to
access the final product and reportbacks should be
mandatory. A process of openly discussing the research agenda and what can be
expected of either parties should be discussed before the research commences.
Where possible the research should be done in partnership with, and be
empowering for, those involved. All researchers should be trained in aspects of
research and performance monitored.
A further issue to consider is training
researchers to manage the potential for vicarious traumatisation.
This can affect them personally and how they undertake their work and how they
relate to those affected by the conflict. For example, high levels of traumatisation with some of the staff and researchers were
observed during the life of the South African Truth and Reconciliation
Commission. Some of these symptoms and signs of vicarious traumatisation
which TRC staff have experienced have included nightmares, paranoia, emotional
bluntness, physical problems (e.g. headaches, ulcers, exhaustion, etc.), high
levels of anxiety, irritability and aggression, relationship difficulties and
substance abuse related problems. Some of those who interviewed victims of
violence, as well as those who simply read and processed harrowing statements,
experienced these problems.
In conclusion, those researching in this
area should be trained in ethical research methods as mentioned. They should
receive specific training about the context of the conflict and its psychosocial impact on individuals and communities, as well
as on themselves. In addition, all those interviewing victims of violence
should be trained on how to do this in a psychologically sensitive manner and
be equipped with referral lists and useful phone numbers of support agencies —
for themselves and those they are interacting with.
4.9 What steps, if any, do OFMDFM
and the NIO need to take to ensure that victims know the relevant part of
Government to access for help (section 5.3)?
The fact that there is some confusion
between the OFMDFM and NIO functions with regards to so-called victim issues is
well known. There have been several attempts to clarify this and the
publication of the different remits in the Consultation Paper has been useful
in reinforcing the distinctive roles. The only way, other than continually
publicising the difference to help understand the situation would be to begin
to move towards actually amalgamating the process. This could prove incredibly
difficult and is currently legally impossible. However, if one takes a holistic
view of the issue at hand it is clear from our arguments that some of the
issues under the remit of the NIO will impact on the way those affected by
conflict will attempt to deal with the situation, e.g. compensation, justice.
The IDWG will have to discuss these issues and find ways to resolve the
potential confusions if it is to ensure a comprehensive approach to those
affected by the conflict is developed.
4.10 If such seminars or conferences
were to be held, what subjects should they address (section 5.5)?
There are many issues that could be dealt
with through conferences and seminars. However, in line with the broad thrust
of this submission, we feel that greater exploration of the complexities of
dealing with the impact of the conflict should be undertaken. Such events need
to look at the long-term nature of dealing with the issues at hand
(international precedence would suggest that it will be for the next few
decades that the impact of the conflict on individuals and their families will
be felt). The relationships between the different aspects that those affected
by violence need to be addressed, such as their social, psychological and
economic needs. The way that different governments deal with the legacy of
violence (and their failures such as trying to find short-term solutions to a
long-term problem) would also make for fruitful investigation.
Furthermore, discussion on the
interrelationship between healing and issues such as truth, justice,
reparation, commemoration and acknowledgment needs to
take place. Exploration of community and culturally specific methods for
dealing with the impact of violence can also be useful, along with
understanding local and traditional forms of support, coping and resilience.
4.11 If the Touchstone Group is to
be replaced, what should replace it? Who would be on any new group and how
would they be selected (section 5.6)?
In line with our arguments in 4.1,
we would support the establishment of an Advisory Committee to advise
and guide the work of the OFMDFM and IDWG. This would be similar to the concept
of the Touchstone Group. However, the selection process for the membership to
that group should be public and transparent and have come through public appointment
of individuals to the Psychosocial Support
and Advisory Panels as argued in 4.1. It is vital that the
representatives of the group are seen as legitimate and appropriate for the
task at hand and are publicly appointed.
4.12 Should a Victims Commissioner
be appointed? If yes, what should their role and remit be and how would a
Commissioner fit with the other potential structures outlined in this Chapter
(section 5.7)?
We are not convinced that a Victims
Commissioner would be a useful addition to the current structure. We are
primarily concerned that the appointment would help cement forms of ‘victimhood’ and become another controversial issue within
the debate creating further division rather than ameliorating it.
In line with our earlier debates and our
delineation of issues between ‘psychosocial service
issues’ and ‘historical legacy issues’, we feel a post like Victims
Commissioner could conflate the issues once again. To expand: if the main
tenets of the Consultation Paper form the basis of the strategy then the
strategy will largely be dealing with service delivery related issues and not
‘historical legacy issues’ such as acknowledgement, justice and remembrance.
Although the services, as we have stated, are vitally necessary they are not
sufficient to deal with all the needs of so-called victims. By creating a
Commissioner for this process it will reinforce the perception that this
individual is tasked (either in writing or in perception) with smoothing and
dealing with the difficult and fraught issue of addressing the ‘service’ and
‘historical legacy’ needs of those who have suffered through incidents of
violence.
To deal with service related issues, the
structures and processes outlined in this submission, supported with a publicly
accepted Advisory Committee and Panels, should be sufficient to
guide the OFMDFM’s implementation and delivery of
accessible and appropriate services. If these bodies are working properly there
is no need for a Commissioner, whose appointment would inevitably be followed
by some bureaucratic structure creating more confusion for those wanting to
access the system.
We have noted that discussions on the
‘historical legacy issues’ need to begin through the IDWG, Advisory
Committee and Panels. Any involvement or discussion in these issues
from the Assembly perspective, given their highly charged nature, should be run
through a highly representative process and not tasked to one individual who
will invariably be pulled between perspectives, or branded as carrying a specific
political agenda — rightly or wrongly.
Thus, we feel the emphasis should be on
getting structures operating at local and Assembly level before any decision on
a Commissioner is taken. After careful consideration, we are also not convinced
by any arguments that say that so-called ‘victims’ need an additional
‘listening ear’ or ‘champion’. It appears that if you ask most people they will
say that action is what is needed. The introduction of a new person into the
system will result in another round of consultations, specifically with the
so-called ‘victims groups’, who have been subjected to a number of such
consultations over the last few years. In the final instance, we feel the
Assembly — as a representative body of the people — should be seen as a whole to
be prioritising and dealing with this issue, not an individual.
Posted on www.brandonhamber.com
Reference: www.brandonhamber.com/publications/sub-ddvictims.htm