Scottish Government response to the final Report of the Advisory Group on Tackling Sectarianism in Scotland: May 2015

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MINISTERIAL FOREWORD

Tackling sectarianism in Scotland is a key priority for the Scottish Government. Scotland, in the 21st Century, is made up of many people from a hugely diverse range of backgrounds and cultural identities. Scotland is home to those who wish to build a better nation that sees individuals and communities move away from the confines and prejudices of the past to a brighter future which embraces all of our people, as equals, on the basis of mutual trust, respect and understanding. Tackling all forms of prejudice, hatred, abuse and discrimination, in whatever form they take, is absolutely central to building the Scotland that I believe we all want to see – one where everyone, regardless of background, can live and raise their family in peace, and without fear, and one where all can contribute to and share in the wealth of our nation.

I am pleased to welcome the final report of the Advisory Group on Tackling Sectarianism in Scotland (the Advisory Group). During my time as Minister for Community Safety and Legal Affairs I have been very impressed with, and grateful for, the work that the Advisory Group has undertaken, and particularly with the breadth of discussions they have had across Scottish society. These discussions have not just been with those occupying senior positions in society, they have also included discussions with those working in communities across Scotland who are dealing with the impact of sectarianism on a day-to-day basis.

I have also been delighted with the work that the Advisory Group has undertaken to help us to build a robust research evidence base for understanding the nature and extent of sectarianism in modern Scotland. This work has been exceptional and, while we cannot claim to have a complete picture, we do have a significantly better understanding than we had prior to the establishment of the Advisory Group. The combination of the Advisory Group's report and the research evidence that we now have will form the basis for underpinning our policy development in the future and will therefore be central to how we move forward with this agenda.

I concur with the Advisory Group when they say that they have discovered a real appetite for change in communities across Scotland and a strong desire to move away from the prejudices of the past. In my travels and visits to see community work that is tackling sectarianism, I have been overwhelmed by this desire for change and particularly for ensuring that future generations are not burdened with the prejudices that have, in the past, kept communities apart and made individuals within their communities suspicious of each other. Mistrust and fear are the worst possible legacies that we can pass on to our children and it is up to all of us to ensure that our gift to future generations is a happier and brighter future. It is among the young people of Scotland that I find the greatest hope for positive change.

I am proud that Scotland's diversity is its strength and I want to celebrate that diversity and build a nation where everyone is respected and able to celebrate their culture without fear of prejudice, bigotry or alienation. We must recognise the positive contributions of all of our communities make to modern Scotland. We need to be proud of our identities as modern Scots while embracing those of others with generosity and goodwill.

It is a hugely positive feature of the world in which we live that we are not all the same – if we were the same, I contend our world would be a dull place. We should therefore celebrate the right to be different – the right to be ourselves. Let all who live in Scotland, therefore, go forward as a single nation united by the unique contributions that we can each make to the cultural wealth and collective health of our country, which embraces the future we share, while also respecting the past that made us who we are.

PAUL WHEELHOUSE MSP

Background

1. In 2011, the Scottish Government embarked on a new phase of work to tackle sectarianism. Central to this work has been the input of independent advice through the Advisory Group on Tackling Sectarianism in Scotland (the Advisory Group). The Advisory Group published its interim report in December 2013 and the Scottish Government published its response to this in February 2014. The final report of the Advisory Group is being published alongside this Scottish Government response in May 2015.

2. The Scottish Government continues to commit resources and support activity to tackle sectarianism in Scotland. This issue remains central to our work to tackle all forms of prejudice, bigotry and abuse. We fully recognise equality among and between all of our communities and welcome all those who have chosen to make Scotland their home as modern Scots. Building the Scotland we aspire to be means building a Scotland where people from all backgrounds and beliefs can live and raise their families safely and free from fear of bigotry, prejudice and discrimination.

3. We also recognise that the history of Scotland has been shaped by migration and immigration and that all of our identities are multi-layered to reflect our culture, ethnicity, beliefs, histories, politics and allegiances. We are all equally modern Scots – there is no hierarchy of who can lay claim to this status.

4. Developing appropriate and effective work to adequately tackle sectarianism in Scotland has been a difficult challenge. In doing this we recognised both the strengths and weaknesses of previous approaches and acknowledged the work that many people and organisations have contributed to this agenda. We therefore focussed on three strands of activity which we felt were central to developing this agenda. They were:

To engage communities and identify the issue as they experienced it;

Build a more robust evidence base and gain a greater understanding of the problem;

Obtain independent expert advice on the issue.

5. To support the delivery of the first two strands the Scottish Government committed £9 million over three years (2012-15) for work supporting this agenda, and have committed a further £3 million to support this work in the current financial year (2015-16). This funding supports the community action and research which is discussed more fully later in this response.

6. In relation to the third strand we established the Advisory Group to bring together five individuals who have expertise in this area through their work in communities and as academics. The Advisory Group and the work they have delivered is also discussed more fully later in this response.

Advisory Group

7. The Advisory Group was established in August 2012 by Roseanna Cunningham MSP, the then Minister for Community Safety and Legal Affairs, to provide Scottish Ministers with impartial advice on developing work to tackle sectarianism in Scotland. The interim report of the Advisory Group was published in December 2013 and the Scottish Government responded to the report in February 2014.

8. The Scottish Government welcomes the work that has been done by the Advisory Group, the time invested, evidence gathered and the recommendations that have been formulated. This is a significant step forward for the agenda; by building on the interim report, a picture is emerging of the issue, or what is perceived to be the issue, and what type of actions can be taken to address it.

9. In their final report, which has been published alongside this response, the Advisory Group acknowledge that sectarianism is not the most important social issue in Scotland but it is one that should not be ignored and allowed to fester as it impacts on relationships, fear and perceptions. Indeed, the Advisory Group suggest that the depth of conversation that they embarked upon was testament to the health of civic society in Scotland at this time and shows the potential for exploring the possibilities for positive change.

10. The Scottish Government wholeheartedly endorses this view and recognises that a long term approach is required to tackle sectarianism and all other social problems. Long term engagement and action will provide the opportunity to sweep away the remaining stigma and fear associated with sectarianism and change anxious silence into acknowledgement, engagement and action.

11. We are therefore happy to give a commitment to look at each of the recommendations and conclusions made by the Advisory Group and to take forward work where we have a direct role and work with partners, where appropriate, to move this agenda forward.

Community Action

12. The 'Scottish Approach' is at the heart of the Scottish Government's work with communities. This means that we are seeking to work in partnership with communities to ensure that the identified needs of individual communities are at the heart of our work. We see the people who make up those communities as assets and best placed to resolve the social issues which they are facing, including sectarianism. Our approach has been heavily influenced by the report of the Christie Commission on the future delivery of public services.

13. That is why our approach to delivery of direct activity to tackle sectarianism has focussed on delivering community-based projects which allowed organisations that were either rooted in communities, or working in partnership with them, to work with those communities to identify, define and deliver work which was appropriate to address specifically identified needs. In doing this we allowed the definition of community to be either a geographical community or a community of shared interest (such as a cluster of schools). In addition, we encouraged organisations to be as innovative as possible and to take new approaches to tackling an old problem which have stubbornly refused to go away.

14. Between 2013 and 2015 this approach resulted in the delivery of forty-four community based projects supported by Scottish Government funding. For the 2015-16 financial year, the funding criteria was revised to include a strong focus on projects achieving sustainability to ensure that the good work which has been developed can be embedded to continue to support communities to tackle sectarianism in the future and all forty-four projects were invited to bid. The majority applied and a few organisations combined their work to form a partnership resulting in thirty-eight projects and a small grant programme being funded in the 2015-16 financial year supported by £2.3 million of Scottish Government funding (Annex A).

15. The learning from these projects is extremely important in allowing us to build on the work and engagement that has taken place in communities across Scotland. This learning will tell us what does and does not work in different circumstances and situations, and thereby help us to focus future work and ensure it has the maximum impact possible. That is why we have worked with the Voluntary Action Fund and the Advisory Group to develop a bespoke evaluation framework for the funded projects called 'Scotland: No Place for Sectarianism' which can be found at: http://www.voluntaryactionfund.org.uk/files/5413/8927/4832/no_place_for_sectarianism.pdf

Research

16. Building a robust evidence base on the nature and extent of sectarianism in modern Scotland has been a central focus of our work in this area. All of the research commissioned by the Advisory Group has now been completed and is in the public domain. We have summarised this research below and provided links for those who wish to examine this evidence in more depth.

17. In June 2013 the Scottish Government published ‘An Examination of Evidence on Sectarianism in Scotland’ to help identify key evidence gaps and provide a baseline for the development of a programme of research. This report can be found at: http://www.scotland.gov.uk/Resource/0042/00424891.pdf

18. We have now updated ‘An Examination of Evidence on Sectarianism in Scotland’ to incorporate all of the research that has been undertaken and published in response to the e original report in June 2013. This update has been published alongside the Advisory Group’s final report and this response.

19. The first of a trio of publications that took place in February 2015 was ‘The community impact of public processions’ a qualitative study of communities where Loyalist and Irish Republican marches and parades take place, exploring the impact they have on the local communities. The report can be found at: http://www.gov.scot/Publications/2015/02/5330

20. The second was ‘Communities’ experiences of sectarianism in Scotland’ a qualitative study in a number of selected communities to explore if and how sectarianism affects them and how it may form part of people’s everyday experience. The report can be found at: http://www.gov.scot/Publications/2015/02/9920

21. Completing the trio of publications was ‘Public attitudes towards sectarianism in Scotland’ a nationally representative survey of the Scottish population to provide detailed information about perceptions and attitudes towards sectarianism. The report can be found at: http://www.gov.scot/Publications/2015/02/3769

22. In addition to these specific pieces of research, work was commissioned on ‘Demographic trends’. This comprised an analysis of the religious identity of people in Scotland as reported in the 2011 census and the significance of demographic changes since past censuses.

23.We also looked at ‘Non-criminal harassment’.This was the commissioning of new modules in the Scottish Crime and Justice Survey and the Scottish Household Survey, to ask respondents about occasions when they may have felt discriminated against, harassed or abused for sectarian reasons.

24. The academic research has, of course, been central to building our evidence base, but it is not all that we have considered. Adding to this work we also need to consider analysis of crime statistics that relate to sectarianism and are committed to annual analysis of both hate crime statistics and religiously aggravated offending under Section 74 of the Criminal Justice (Scotland) Act 2003.

25. More broadly than this, we are committed to looking at the evidence that is coming from the projects that are working in communities to tackle sectarianism and how this evidence can help to make the picture of sectarianism in Scotland more holistic. We have also commissioned the Scottish Storytelling Centre to capture the human dimension of the projects, reflecting on emerging themes and celebrating their collective achievements. All of this will ensure that the academic findings are brought to life with the real lived experiences of people in communities across Scotland.

26. During 2015/16 the Scottish Government will work with key partners to develop a history of sectarianism as recommended by the Advisory Group. The evidence base has taken valuable steps forward and a clearer history timeline will be developed and made available for use by practitioners and professionals in different settings to engage, educate and inform.

27. This has been a very robust approach to building the evidence base on a social issue and we are committed to continuing to build this base while also looking at whether it can be applied in other areas and to other issues. We do of course recognise that this approach may not be suitable for all issues, but it is definitely a strong tool that can be applied and adapted where appropriate.

Definition

28. In their interim report, the Advisory Group developed a working definition which embraced all forms of sectarianism that may be experienced by individuals and communities across Scotland. We committed to test this definition and have worked with the funded projects to obtain practical feedback regarding how it was received and understood. We also issued a short questionnaire through the 'Action on Sectarianism' website allow anyone who had an interest to comment.

29. Collation of all of the information, along with direct feedback received by the Advisory Group allowed them to assess the definition and further developed and refine it based on this feedback. A shorter definition has been proposed by the Advisory Group, however, they have also recognised that there needs to be flexibility in this to allow organisations to adapt it to meet the specific circumstances they are working in.

30. We do not believe that this flexibility weakens the definition, quite the contrary. Our evidence shows that sectarianism is a complex and multi-dimensional issue which has its roots in historic religious tensions, even when those are difficult to discern in the modern context, and that presenting it as a single dimensional issue, such as anti-Catholicism or anti-Irish racism, is inadequate. The extent to which different elements mix together to form sectarianism will vary in different communities and circumstances, and adaptability is needed to respond to these.

31. It is important that we allow time for testing the refined definition through community work and receiving further feedback and responses from as wide a range of people and communities as possible before any further changes are made. We encourage everyone to debate, test and respond with comments and feedback through the 'Action on Sectarianism' website which can be found at: https://www.actiononsectarianism.info/.

Responsibility

32. Over the course of the Advisory Group's work they have called for leadership and responsibility taking across Scottish society to help develop, support and promote work to tackle sectarianism. This is reflected in their final report where the Advisory Group report calls on all organisations and institutions to respond appropriately to address the manifestations of sectarianism in their areas of activity and influence.

33. In recognising our own role in relation to this, the Scottish Government also recognises the need for a culture of responsibility taking rather than denial and deflection across society and urges all areas of Scottish society to support, develop and mainstream work within the communities they serve.

34. We have written to key organisations inviting them to consider the recommendations in the Advisory Group report and respond appropriately, engaging with on-going work and relevant partners as well as taking responsibility in their area and with the communities they serve.

Conclusion

35. The Scottish Government has greatly valued the commitment, enthusiasm and expertise the Advisory Group have brought to the agenda to tackle sectarianism. Engagement across Scotland on such a difficult and emotive subject was not an easy task. It was only made possible through the positive approach and openness of the Advisory Group who were willing to listen to and acknowledge the opinions, experience and nuances of the issue.

36. The work of the Advisory Group has been hugely beneficial in opening up the conversation on sectarianism both locally and nationally. All members of the Advisory Group have committed significant time to this work and we recognise that it is unrealistic for them to continue to do so, in the same manner, in the future. We do however, recognise the value that independent advice has brought to shaping this agenda and will continue to seek such advice to help shape the agenda in the future and to ensure that all organisations, including the Scottish Government, are responding appropriately to the conclusions and recommendations in the Advisory Group's final report.

37. In addition, we would value independent advice to support the development of specific areas of work. For example, there are recommendations which relate to churches, local government and football authorities and clubs and independent advice in progressing these could help to ensure that a broad range of perspectives and approaches are considered to support the delivery of work in these areas. Furthermore, the Advisory Group has provided invaluable advice in relation to building the evidence base and we believe that independent advice would significantly help to support the continuing development of this evidence as well as supporting evidence gathering in other areas such as our work to tackle hate crime more broadly.

38. We are delighted that members of the Advisory Group have indicated their willingness to continue to support this agenda and are in discussions on what roles they could play as we go forward. We hope to be able to formally announce these shortly.

39. There is no doubt that this agenda has moved forward significantly in the last few years and we are grateful to all of those who have participated in this work through involvement with community projects, research work or engagement with the Advisory Group. We are also particularly grateful to all of those individuals across Scotland who are helping to tackle sectarianism simply by changing their own behaviours, challenging those of others and positively influencing those they can.

40. Sectarianism is a real problem for many people in many communities across Scotland, but it is neither the biggest or only problem being faced. However, tackling sectarianism, along with all other equality issues, is important work as it has a positive impact on our health and wellbeing, our pride in our communities and our right to live free from prejudice, bigotry and discrimination. That is why we remain committed to tackling sectarianism and to working with communities and organisations as partners to eradicate sectarianism once and for all. By working together we can build the Scotland that we want to be.

ANNEX A

Organisation
Project
Funding

Name
Description
Area

Aberlour Childcare Trust – Youthpoint Glasgow
Anti-Sectarian Project
Running workshops and developing peer led inputs for ages 11+ with a focus on working with parents over the next year to help address entrenched attitudes, gain a better understanding of people’s religions, beliefs and cultures along with the impact of sectarianism.
Greater Pollock
£24,492

Bridging the Gap
Bridging the Gap
Tackling sectarianism through issue based workshops bringing young people together from different backgrounds of religion, geographical area and school.
Glasgow
£52,690

Brora Community Learning Centre – High Life Highland
Community Safety Research Programme
Enabling communities in rural Highlands to engage on the issue of sectarianism, creatively and sustainably. Basing a programme of workshops, CPD training and a long term/project legacy showcase over the year.
East and West Highlands (Highland Council Area)
£56,218

Central Scotland Regional Equality Council
Empowering Falkirk Communities to Tackle Intra-Christian Sectarianism
Raising awareness, supporting communities to develop interventions and creating a legacy in local schools through training and resource development.
Falkirk – Stirling – Clackmannanshire
£39,159

Citizen’s Theatre
Divided City North Lanarkshire
Theatre-based initiative for primary pupils, exploring the issue through workshops and the staging of the ‘Divided City’ play.
Renfrewshire
£151,028

Community Links – South Lanarkshire
Sectarianism and Communities: Offline, online, past and present.
Exploring sectarianism in the online community, providing information and education for social media users. Also engaging adults in community learning.
Across Scotland (Online – Social Media) and South Lanarkshire (Participatory Action Research element)
£49,783

Deaf Connections
Tackling Sectarianism Accessible Formats
The tackling sectarianism accessible formats project is looking at increasing the variety and quantity of resources accessible to deaf and hard of hearing people through the translation of key research findings, reports and materials from their partner organisations in the tackling sectarianism network.
Glasgow and West of Scotland
£38,580

Faith in Community Scotland, Conforti Institute, Place for Hope: Partnership Project
In Wi’ The Mix
Working with Catholic and Reformed churches and other community partners to strengthen their capacity to respond to and tackle sectarianism locally and at an institutional level.
Glasgow/ North Lanarkshire/ East/North Ayrshire/ Dumfries and Galloway
£233,776

Fauldhouse Community Development Trust
Communities Tackling Sectarianism Together
Working with local residents to develop local community- led action projects to address the sectarian issues understood and experienced.
West Lothian
£36,356

Glasgow Women’s Library
Mixing the Colours: Women Speaking about Sectarianism
Exploring sectarianism as it affects women, supporting women to develop implement and lead on effective and sustainable solutions to sectarianism.
Greater Glasgow and Clyde, Dundee and Edinburgh.
£59,926

IC Thinking (Cambridge) Ltd.
I SEE! Scotland
Increasing understanding of sectarianism through community engagement and sustainable intervention.
Glasgow, Edinburgh, Stirling, Falkirk
£50,952

In Cahootz Ltd
Tackling Sectarianism Project
Exploring Sectarianism in particular parental responsibility around the issue with parents.
Glasgow, North Lanarkshire and North Ayrshire
£36,860

Inverclyde Community Development Trust
“Gie’s Peace” Anti-Sectarianism Inverclyde
Tackling sectarianism through developing skills, increase confidence and raise awareness in the wider community. Create a dialogue around the issue of sectarianism and encourage community members to engage with the issue they experience.
Inverclyde
£45,182

Just Festival
Together Tackling Sectarianism
9 plays exploring intra-Christian sectarianism, 8 of which written and performed by the participants.
City of Edinburgh (and partnership working in Highlands, North and South Lanarkshire)
£31,500

Nil by Mouth (1)
Beyond Religion and Belief
Tackling Sectarianism in the workplace, working with employers and training providers to discuss, challenge and increase awareness of sectarianism in the workplace.
Scotland Wide
£42,900

Nil By Mouth (2)
Champions for Change
Working with schools and communities, providing a framework to develop anti-sectarian work, supporting staff, pupils and parents and delivering an accreditation programme.
Scotland Wide
£31,875

North Glasgow Football Development Group
Bridges and Barriers
Working with local agencies to implement an education and sporting anti-sectarian programme including local community coaches/ volunteers.
North Glasgow
£23,943

Ng Homes
Community Football Partnerships
Working inter-generationally, the Community Football Partnerships programme will deliver activities in school and community settings, in conjunction with educational workshops, to address sectarian views within the North Glasgow community.
North Glasgow
£25,959

Parkhead Youth Project
Nae Excuse for Sectarian Abuse
Street work leading to better evidence gathering, peer education and improved interaction with young people in the area.
Glasgow
£34,217

Pilmeny Development Project
Leith anti-sectarian project
Pilot the Community Resource/Toolkit developed in previous years to help challenge community tensions and encourage better integration of the religious groups that make up the Leith community.
Edinburgh
£20,000

Renton Community Development Trust
Renton Community Development Anti Sectarian Project
Developing a greater understanding of how sectarianism impacts on communities, developing skills to combat sectarian attitudes and actions and increase the capacity of communities to challenge sectarianism.
West Dunbartonshire
£62,629

Royston Youth Action
Dealing with Difference
Delivering educational activities and workshops, in schools and community settings with young people and adults.
Glasgow
£62,735

Sacro
SASS – Sacro’s Anti-Sectarian Service
Behavioural and attitudinal change programme in relation to sectarian offences, aiming to provide an alternative to court disposals for adults and young people.
Central Belt
£76,450

Scottish Community Development Centre
Community Action Research in Tackling Sectarianism
Develop a team of trained facilitators, build capacity of community organisations and engage local planning structures through co-production, co-inquiry and action learning.
Central Scotland
£49,700

Scottish Books Trust
Walk the Walk
Engaging participants with literacy needs, increasing understanding of sectarianism and how it impacts, and helping to improve reading ability, confidence and communication skills through tutor training around ‘Walk the Walk’ resource.
Scotland-wide
£92,392

Sense Over Sectarianism
Sense over Sectarianism
Supporting and building capacity in communities to challenge and change the attitudes, values and behaviours that perpetuate sectarianism and create divisions.
Greater Glasgow
£169,676

Shotts Healthy Living
Getting Better Together Project
Community-led approach to tackling sectarianism building on work of previous project to embed and ensure community ownership and learning is developed and shared.
North Lanarkshire
£20,413

Show Bigotry the Red Card
Show Bigotry the Red Card
Using education and campaigning to divert people who are most at risk most at risk of becoming involved in sectarian behaviour.
Scotland-wide
£20,000

Stewartry Council of Voluntary Service
South West Scotland Sectarian Project
Tackling the effects of sectarianism and increasing awareness and understanding of social media harassment and bullying and creating awareness and a better understanding of threats to community cohesion.
Dumfries and Galloway
£52,512

Supporters Direct Scotland
The Colour of Our Scarves
Working with football clubs and local community clubs to increase awareness of the impact of sectarianism.
Dundee, Falkirk, Hamilton, Edinburgh
£54,126

The Spark
Positive Community Relationships
Delivering group work with young parents/prospective parents, raising awareness of sectarian behaviour in families and communities.
Glasgow, Inverclyde, South Lanarkshire
£105,972

West of Scotland Housing Association
New Futures Project
The project aims to develop a greater understanding of the roots of sectarianism and challenge negative attitudes and behaviours.
Glasgow and North Lanarkshire
£20,000

West of Scotland Regional Equality Council
Changing Sectarianism Across Generations
Focus on sharing good practice, facilitating dialogue and building a sustainable legacy using developed educational resources, bringing Christian communities together and young people being brought together to deliver project exploring sectarianism.
Glasgow, Renfrewshire and Argyll & Bute
£45,750

Xchange Scotland
Make Sectarianism a History Lesson
Increasing understanding of the impact of sectarianism, and improving dialogue and understanding in the community.
Glasgow
£41,958

Youth Scotland
Stand up to Sectarianism
Working with uniformed organisations to tackle sectarianism by training volunteer workers, developing peer education, funding local initiatives and supporting a network of all workers.
Scotland-wide
£55,307

Youthlink Scotland (1)
Sustaining and Improving
Sustaining and improving the Action on Sectarianism (AoS) website to promote work and good practice and provide information and opportunity to debate.
Scotland-wide
£64,303

Youthlink Scotland (2)
Looking Forward Not Back
Research pilots developing community- led youth work approaches to tackling sectarianism in communities.
Stirling, North Lanarkshire, South Lanarkshire, East Renfrewshire, Dumfries and Galloway
£66,474

Yipworld
The Same But Different
Enable young people to participate in practical learning to challenge sectarianism through a wider equality and diversity focus.
East Ayrshire
£26,316

Voluntary Action Fund
Small Grant Programme
Small Grant Programme available for organisations to apply for funding to for a local anti-sectarian project.
Scotland-wide
£150,000

Totals:

£2,322,109