This is the full text of Security - Return to Normality, published yesterday by the Northern Secretary, Mr Peter Mandelson. It sets out the British government's "overall strategy for achieving normal security and policing in Northern Ireland".
The Government's Approach
A Fresh Start
1. The Good Friday agreement represents a fresh start. It offers a way out of 30 years of violence, hope for the next generation and the chance to build a new and prosperous Northern Ireland.
2. We are convinced that the full implementation of the agreement will radically transform the prospects for peace and stability. In this context, we are fully committed to normalising security arrangements and practices as quickly as the current threat allows. That is the balance we must, and will, achieve.
3. This paper fulfils the government's commitment in the agreement to publish our overall strategy for reaching that goal; explains what we have already done and why; and sets out the further steps we propose to take.
Our Overall Strategy
4. Major changes have already been made to the security profile in accordance with this policy, as described below. But the difficulty in predicting the activities of those groups who continue to use or threaten violence prevents us from establishing in advance a precise timetable or sequence of measures to achieve normalisation. Nevertheless, in the climate of greater stability created by the successful outcome to the Mitchell review, we expect to see progress in the following areas, as set out in the agreement.
(i) "The reduction of the numbers and role of the armed forces deployed in Northern Ireland to levels compatible with a normal peaceful society"
What has already been done
Since the Good Friday agreement, there have been significant reductions in activity. Across most of Northern Ireland, the police now operate without army support. Since January 1999 - except for temporary reinforcements during the summer "`marching season" - there have been under 15,000 service personnel on operational duties in Northern Ireland, fewer than at any time since 1970.
Further steps to follow
- A reduction in the number of troops available to the general officer commanding for counter-terrorist and public order operations in Northern Ireland. This might include progressive withdrawal of the remaining three battalions posted temporarily to Northern Ireland back to their permanent locations in Great Britain; and
- Service personnel remaining in Northern Ireland engaged in normal peacetime activity.
(ii) "The removal of security installations"
What has already been done
Since 1995, 26 army bases and installations have been closed or demolished, most recently at Letterkenny Road in Londonderry, Strabane, Bessbrook, Carrickfergus and the six remaining patrol bases along the Fermanagh border. The demolition of Fort Whiterock in Belfast has been completed. Land requisitioned from the Crossmaglen GAA club has been returned. The great majority of vehicle control zone orders have been rescinded. Barriers and checkpoints have been opened in Belfast and other cities, along the Border, at Belfast International Airport and in towns and villages across Northern Ireland. 102 cross-Border roads have now been reopened. In several places barriers and other security furniture have been removed completely.
Further steps to follow
- Security barriers and gates in some 20 town and city centres in Northern Ireland will be left open and eventually completely removed; remaining control zones will be lifted;
- public access to police stations and public buildings will be improved and protective fencing progressively removed; and
- a review is now under way which will focus particularly on specific security arrangements, including various installations throughout Northern Ireland, taking account of the prevailing threat. Any changes will, of course, depend on genuine cessations of violence and continued progress in the political process. The first phase of this review will be completed early in the new year.
- when normalisation is complete, only such military installations as are required for normal peacetime duties will be retained.
(iii) "The removal of emergency powers in Northern Ireland"
What has already been done
The use of emergency powers has been greatly reduced to reflect changes in the terrorist threat. The power of internment has been removed from the statute book and all exclusion orders have been lifted. Between 1994 and 1998, arrests in Northern Ireland under the Prevention of Terrorism Act fell by about 60 per cent and extensions of detention by about 50 per cent. Security force searches under the Emergency Provisions Act fell by almost 80 per cent. The number of juryless trials also declined by about 65 per cent. The Chief Constable has announced that the police holding centre at Castlereagh is to close. But the government has not hesitated to take firm and carefully calibrated action when the threat requires, for example after the Omagh atrocity.
The Criminal Justice (Terrorism and Conspiracy) Act was a targeted, proportionate response against small unrepresentative groups who were not observing a full and unequivocal ceasefire.
The government published a consultation paper in December 1998 on future legislation against all forms of terrorism and a new Terrorism Bill was introduced in Parliament on December 2nd, 1999. The repositioning of emergency powers within United Kingdom-wide legislation underpins the government's commitment to removing these powers as soon as the security situation allows.
Further steps to follow
- A continuing decline in the use of the counter-terrorism legislation;
- the closure of the police holding centres at Gough Barracks and Strand Road as soon as practicable;
- an increase in the proportion of jury trials; and
- the enactment of new United Kingdom-wide counter-terrorism legislation, with the removal of measures and powers specific to Northern Ireland, with transitional arrangements as necessary. The new law will be fully consistent with human rights obligations and will allow the United Kingdom to lift its current derogation under the European Convention on Human Rights by introducing a new judicial system for authorising extensions of detention.
(iv) "Other measures appropriate to and compatible with a normal peaceful society"
What has already been done
Already on the ground the Chief Constable is changing the level and nature of policing to reflect the reduced threat. Emergency powers to stop cars and people are now much less used. Increasingly, the police patrol without army support, often on foot or in police cars and without flak jackets and other protection.
In relation to wider policing issues, the government has put in place measures which enhance community accountability in the delivery of the policing service. Changes have been made to the "RUC oath"`. The office of Police Ombudsman is being established to enable independent investigation of complaints.
Further steps to follow
- Continuing the significant reductions in military support to routine police patrols and in operations specifically designed to counter terrorist activity (for example vehicle check points, searches and helicopter operations);
- an end to all military operations in support of the police (save where specifically requested, for example for civil emergencies or major public disorder);
- a review of the use of plastic baton rounds; and
- the closure of HMP Maze by the end of 2000.
5. These lists of measures show what has already been done and the further stages by which the government hopes, in a progressively improving security environment, to achieve the goal of a Northern Ireland where all manifestations of terrorism and the measures necessary to deal with them effectively are removed as soon as possible.
Need to Protectthe Community
6. The government has an overriding duty to protect the community from threats from whatever quarter and in whatever form they come. The horror of Omagh and even more recent attacks have shown the need to maintain vigilance against those who seek to undermine the agreement by violence and murder. But these attacks have not prevented reductions in army activity and troop levels or the closure of army bases. If, as the government hopes and expects, the terrorist threat continues to diminish and eventually to be removed, normal policing arrangements and practices will be established in Northern Ireland, with an end to special security measures and powers. The government, the police and the army are pursuing this objective with energy and determination. But the speed with which we can move to implement the steps outlined in this document depends on the actions of those who choose to employ violence - or the threat of it - for political ends.
7. Excellent co-operation between the police services North and South continues. This co-operation reflects the determination of both governments to protect the community, shown in recent legislation which has aligned counter-terrorism law in the two jurisdictions even more closely than before. The Patten report has included a number of recommendations to enhance the cooperation still further.
Whilst Looking to Normality
8. Progress is well under way. Chris Patten chaired the Independent Commission on Policing which was established under the Good Friday agreement and made recommendations for future policing structures and arrangements in Northern Ireland. The government embarked upon a period of consultation which lasted until the end of November 1999, and will make a statement on its response to the Patten report shortly.
9. When there is no further need for the army to provide counter-terrorist and public order support to the police, the service personnel based in Northern Ireland will be only those required for duties in a normal peaceful society, as part of the wider pattern of armed forces activity set out in the recent Strategic Defence Review. The detailed nature of this long-term presence will require careful study, taking account of practical factors which apply throughout the United Kingdom, such as training needs and facilities and availability of accommodation. Units in Northern Ireland would be engaged on normal peacetime duties such as training and preparation for UN peacekeeping missions or for deployment to places like Kosovo. Some of this training will take place elsewhere in the United Kingdom and abroad.
Conclusion
10. We are also moving forward in other areas covered by the Good Friday agreement. The needs of the victims of violence are being urgently addressed in the light of Sir Kenneth Bloomfield's report, We Will Remember Them. Agreement has been reached on how to pursue decommissioning schemes both North and South. And the Independent International Commission on Decommissioning is addressing its task with determination and vigour. The arrangements agreed by the Sentence Review Commission for the release of qualifying prisoners are being implemented. The Human Rights and Equality Commissions are in place and have started work. Consultation on firearms regulation and control has been completed and legislation is being prepared. Consultation on the criminal justice review began in August 1998. A consultation paper was published in December 1998 on future legislation against all forms of terrorism, with views invited from all side of the community. The paper made clear its hope that there would be no need for any powers specific to Northern Ireland under the new legislation. The current threat does not allow these powers to be dispensed with at this time, but the government has made clear its intention to do so as soon as possible by including them on a temporary basis within the permanent United Kingdom-wide legislation introduced in parliament on December 2nd, 1999. These temporary powers will be subject to annual renewal and they will be lapsed individually as the security situation allows.
11. The Good Friday agreement gives new impetus and direction in all areas, not only security, by shifting the focus to the future and to new ways of resolving old problems. It offers a unique opportunity to build a normal peaceful society in Northern Ireland. The government is determined to seize that opportunity and to play its part in making that vision a reality for all the people here.