Belfast Stories draft equality impact assessment: RIBA Stage 2 Final Decision Report

6. Summary of consultation responses

The Equality Commission states that consultation should be inclusive, afford a fair opportunity to communicate pertinent information and enable consultees to give advice and opinion on the policy so that the public authority may reach a more informed decision. The Equality Commission has also made it clear that an EQIA should not be considered as a referendum whereby the views of consultees from a majority are counted as votes to decide the outcome.^{Footnote five}

The consultation process on this EQIA covered a 16-week period from 19 November 2024 to 9 March 2025. During the consultation period, the draft EQIA report was available on Belfast City Council’s Your Say consultation website. It was accompanied by a survey inviting feedback on the Belfast Stories proposal and draft EQIA. The council’s Equality Scheme consultees were notified of the draft EQIA and invited to comment. Information was distributed and a series of meetings, workshops and events were held across the city.^{Footnote six}

Responses were received as follows.

Survey responses in relation to the draft EQIA

We received 514 to the survey on Belfast City Council’s Your Say Belfast consultation website. Of those, 97 people (18.9 per cent) answered questions specifically on the draft EQIA.

Demographic breakdown of respondents^{Footnote seven}

Nearly half of respondents identified as female (45.4 per cent) and half as male (47.4 per cent).

Half of respondents (49.5 per cent) were aged 25 to 44. 5.2 per cent were aged 60 and over. 2.1 per cent were aged 18 to 24.

Three out of 5 (61.9 per cent) of respondents identified as straight. 18.6 identified as gay, lesbian or bisexual.

14.4 per cent identified as disabled or having a long-term health problem that limits their day-to-day activity.

38.1 per cent had dependants or caring responsibilities for family members or other persons.

86.6 per cent identified as being from a white community background. 1.0 per cent identified as being from a mixed ethnic background, and 1.0 per cent identified as being from another ethnic background.

30.9 per cent identified as being from a Catholic community background; 23.7 per cent from a Protestant community background; and 32.0 per cent from neither a Catholic nor Protestant community background.

Agreement with the assessment of impacts^{Footnote eight}

Over three quarters of respondents (77.3 per cent) agreed with the assessment of impacts. 11.3 per cent disagreed.

One person disagreed but noted they did not read the draft EQIA.

One person noted that it was a “strong document”, and another considered “Actually the answer isn’t yes or no but sort of”.

Other reasons given by those who disagreed with the assessment of impacts were:

Too much focus on “people born and raised here”
Not enough recognition or regard for language rights including Irish and Ulster Scots
Not enough focus on class and poverty
Objection to the categorisation of stories by Section 75 dimension
“it reads as very passive, and reactive, rather than proactive and change-orientated”
“It's not about equality. It's about political correctness. Only one view will be tolerated, that if the government left wing views. No critical sound on the negative siides of immigration and the Muslim crimes will be allowed. There will be no freedom of speech”

Additional impacts

There were 45 substantive responses to the question “Are you aware of any other impacts that we haven't identified?” including 36 responses stating that they could not identify additional impacts.

One response gave “marital status” as an additional impact. Another noted potential to improve equality of opportunity as:

“Extended opening hours and evening activity will enhance community safety in the area, particularly for vulnerable groups such as women, older people and children/young people.”

Other responses were less relevant to good relations or equality of opportunity across Section 75 protected characteristics^{Footnote nine}.

Additional evidence

There were 45 responses to the question “Are you aware of any other evidence or research that may be relevant to Belfast Stories impact assessment?”. Of these, 37 were unaware of additional evidence.

One respondent signposted to six reports on arts and crafts which include some evidence of inequalities within these sectors^{Footnote ten}. Another respondent referred to stories including the Troubles, the Shankill Butchers, Crumlin Road Gaol and Harland and Wolff.

The remaining respondents provided suggestions (rather than evidence) including in relation to car parking, pedestrianisation, environmental impact and story gathering, including one respondent who wanted older people’s stories to be gathered as a priority “before some of those stories disappear”.

Opportunities to Promote Equality of Opportunity and Good Relations

There were 38 substantive responses to the question “What else could we do to promote equality of opportunity and good relations?”. Three respondents stated that they felt plans for the development were already achieving this. Among other relevant responses:

10 responses made general points such as “Set the standard” and “Make everyone feel welcome”
9 responses referred to consultation including with young people, students, community organisations, the disability and age sectors and disabled people
8 responses referred to programming including, for example, free programming, Autism-friendly events, promoting good relations and diversity
7 responses referred to story gathering and curation including the need for a Troubles Museum; to “keep religion out of it” or give a “stronger voice” to people who identify as neither Catholic nor Protestant; and to have an ethics panel
4 responses referred to recruitment including a guaranteed interview scheme for disabled people, recruiting people from the LGBTQ+ community and using disabled consultants
3 responses referred to communications including communications targeted at disabled visitors and use of assistive technology including social narrative videos
2 responses referred to the architecture, specifically: in favour of not erecting gates; and need for child- and Autism-friendly spaces

Responses to the Overall Survey

In total, 514 responses were received to the online survey which, in addition to the questions specific to the draft EQIA, asked questions including:

What might put you off visiting Belfast Stories?
Would you feel welcome exploring the space?
What would make you feel more likely to spend time there?
What would make you less likely to spend time here?
Would you feel comfortable sharing a story?
What would encourage you to share a story?
What would stop you sharing a story?
How can we make sure anyone who wants to can visit Belfast Stories?

The survey was particularly effective at engaging 25- to 44-year-olds, who made up nearly half of the responses (48 per cent).

Approximately half the respondents were female (46 per cent) and half, male (47 per cent).

Nearly 4 in 10 respondents (38 per cent) have caring responsibilities.

69 per cent of respondents identified as straight. At 16 per cent of respondents, the survey was particularly effective at engaging people from LGBTQ+ communities.

12 per cent of respondents indicated that they have a long-term health condition or disability that limits their day-to-day activity.

31 per cent of survey respondents identified as being from outside the two main religions. 31 per cent also identified as belonging to the Catholic community. 22 per cent identified as from the Protestant community.

98 per cent of respondents identified as white, and 2 per cent identified as being from another ethnic group including Chinese, Irish Traveller and mixed.

Concept and Impact

The survey asked, “On a scale of 1 to 5, where 1 is very positive and 5 is very negative^{Footnote eleven}, how do you feel about the development of Belfast Stories and the impact it will have on the area?”

The average score, based on 127 responses, was 2.5.

Demographic Variations

Based on this survey question, people who identify as straight may be slightly more favourable (average score 2.3) than people who identify as gay, lesbian, bisexual or in another way (average score 2.7).

Non-disabled people may be slightly more favourable (average score 2.4) than disabled people (2.8).

People from either Protestant (2.1) or Catholic (2.3) community backgrounds may feel more positive than people from neither of the two main communities (3.0).

People from a white community background (3.7) may be more positive than people from other ethnic community backgrounds (2.5), although only three responses were received from people from other ethnic community backgrounds.

Age

People aged 18 to 24 may feel least positive about Belfast Stories (3.3), although only four responses were received from this age group.

There was no significant difference depending on people’s gender or whether they have caring responsibilities.

Findings Across All Engagement

The following findings are drawn from 514 survey responses, 63 consultation sessions with 838 participants and written responses from 3 organisations^{Footnote twelve}.

Accessibility

Consultees emphasised that best practice or universal access should be designed in to Belfast Stories at this stage, rather than added after. This should include consideration of:

Physical accessibility including ramps, lifts, step-free access, doorways, routes, restrooms, Changing Places and use of hard and soft surfaces
Evacuation planning including visual alarms and lifts that work in fires
Sensory requirements including acoustics, noise levels, quiet spaces, lighting, light, reflections and sensory-friendly and multi-sensory exhibitions
Assistive technology including audio guides, large print materials, subtitling, closed captions, real-time captioning, Braille, hearing loops, high-contrast signage, NaviLens, picture boards and other augmentative and alternative communication
Sign language interpretation
Transport and parking including good transport links, accessible parking and drop-off points
Age-friendly design including comfortable seating, clear signage and easily navigable spaces
Dementia-friendly including easily navigable spaces, sensory-friendly displays and clear signage
Neurodivergence, creating structured environments with clear signage and quiet areas
Key facilities including restrooms, Changing Places, quiet areas and help points frequently throughout the building
Diverse storytelling representing different disabled people and linguistic communities

Consultees also emphasised that access should be embedded in Belfast Stories’ operation, including the provision of equipment to support people with limited mobility, sensory sensitivities and anxiety (for example, loanable mobility scooters and wheelchairs, fidget toys and ear defenders).

Knowledge and skills of staff will be critical to accessibility. Consultees stated staff should be friendly and well trained including in sign language and supporting children and adults with additional requirements. Neurodivergent and Autistic people and people with learning disabilities also feel reassured when they are served by people like them.

A number of groups offered to test or snag Belfast Stories prior to its opening.

Building Design

Consultees identified key aspects of the building design that would make them feel welcome. This included:

The open, permeable architectural design. This appears to be particularly appreciated by people who might have additional reasons to feel unwelcome or unsafe including young people, people from minoritized ethnic groups and women; and local communities, who have perceived themselves “designed out” of other public buildings because of badly positioned entrances.
Wide, step-free entrances
Access to free, high-quality public space, particularly the roof garden and courtyard

Aspects of the building that people felt might present barrier included:

Some people disliked the building’s façade and frontage, which some felt was unwelcoming

Consultees would further welcome:

Signage at entrances and regularly throughout the building in different formats (including Braille), different languages (including sign language, Ulster Scots and Irish), at appropriate height and in appropriately designed (considering people with vision impairment, for example). Some consultees noted, however, that have complex signs could be confusing for some users including people with learning disabilities.
Consideration of how nuisance and anti-social behaviour will be managed. This concern was common among consultees in general but may be a priority for older people, carers, women, parents, young people and people from the LGBTQ+ community in particular.
Consideration of acoustics for different user groups including people with hearing loss and sensory sensitivities, neurodivergent and Autistic people and people with vision impairment who can aid navigation using echolocation.
Consideration of interior design including:
- no complex patterns or designs which can confuse and distract
- hard and soft surfaces including glass which can present challenges for neurodivergent and Autistic people, people with dementia, guide dog users, visually impaired people and people with depth perception challenges. Walkways should be even but not slippery.
- use of light to create a sense of safety and welcome and support people with visual impairment and sign language users
Consideration of the location of key facilities including generously proportioned toilets, Changing Places, baby changing and comfortable seating
Quiet spaces

While more consultees felt that the building should be “neutral – no flags, no propaganda”, one group of young people suggested an integrated approach with the tricolour, Union flag and possibly other world flags displayed at the main entrance.

Facilities Mix

Consultees broadly welcomed the facilities mix with particularly strong support for the roof garden and courtyard. Safe, free-to-access public space may be particularly valued by younger people, older people, parents, carers and women.

Consultees further requested consideration of the following aspects relevant to equality of opportunity and good relations.

A sensory garden
Play facilities for children
Use of the Irish language
A range of food offerings to suit people with dietary restrictions for health or cultural reasons
A range of food offerings celebrating the diversity of Belfast’s communities and cuisine
Inclusive cafes^{Footnote thirteen}

Visitor Experience

Consultees were generally enthusiastic about the visitor experience provided it is engaging and well balanced with a wide range of stories.

Minority and minoritized communities in particular tended to like the idea that they and their stories would not be labelled, put in to boxes or added to the edges.

There were some isolated, though not insignificant concerns raised about the time–space curatorial framework, however.

At one engagement session with people with learning disabilities, there was discussion as to whether the concepts of measured and lived time could cause confusion. For example, some people might think “Closing time” meant it was time to leave the building.
People want to be able to search for stories that are of interest, so there is a practical need for labelling or tagging to support search functions. It was suggested storytellers could provide their own tags.
Some older people in particular were interested in the “cut-off point” for living memory and if older stories “drop off” to make room for newer ones.

Troubles-related stories

A different approach to curating the Troubles was generally appreciated. Survey respondents in particular were more likely not to want the Troubles retold. In practice, most people know the Troubles cannot be ignored. Rather, it is generally considered the stage on which their lives have played out and which makes everyday stories remarkable.

Exhibition

Consultees expected stories to be told in a wide variety of ways appreciating that these would appeal to a wide audience’s communication preferences and requirements. This included:

Interactive and immersive exhibits including audio-visual stories, hands-on displays, demonstrations (for example, of baking, sport or street games), AR and VR
Playful and gamified elements (for example, escape room-style historical stories, quizzes, scavenger hunts) particularly, but not exclusively for children and young people
Multi-sensory experiences including sight, sounds, smell and touch
Multi-language and inclusive formats including Irish and Ulster Scots, sign languages, other world languages, Braille and other tactile communication
Reflection and quiet spaces
Community conversations including with locals and volunteer storytellers
Community spaces where communities and groups could exhibit their stories, archives or creativity

Changing at least some of the exhibition frequently would encourage people to visit again. However, some consultees felt that at least some things should stay the same to “anchor” their visit. This was particularly important for Autistic people, parents and community groups who might feel assured by knowing what to expect from a visit.

Story collection

Nearly three out of five (59 per cent) of survey respondents^{Footnote fourteen} would share their stories. In face-to-face engagements, this was substantially more.

Generally, people expect story gathering to be:

Clear. This includes easy-to-understand guidance on the process and how their stories would (or would not) be used.
Comfortable. For some people, this means talking to peers, while others would prefer to talk to strangers or professionals. Some people may need extra support if there is potential for re-traumatisation. There should also be options to preserve privacy and anonymity. Comfort and safety may be particularly important for people of different political opinion, people from the LGBTQ+ community and people from more socially conservative community backgrounds.
Reciprocal. People expected to get something in return. For most, this was simply meaning: that their story would be part of a greater purpose, greater good or posterity.

People may also be encouraged by:

Diverse ways to share as individuals and groups
Convenience. This includes being able to share their story at Belfast Stories, quickly or remotely (for example, by text message).
Outreach, particularly to those who face additional social or physical barriers to getting to Belfast Stories
Engagement through schools and parents
Collaboration with organisations that are trusted by their communities including to engage geographic communities, the LGBTQ+ community and people from minoritized ethnic communities
Encouragement or invitation. Some people are more reticent because they do not feel they have anything to contribute or are not natural storytellers.

People may be more hesitant to tell their story because of:

Concerns about judgment or ridicule, privacy and anonymity, incrimination, misinterpretation or misrepresentation. This mostly related to sensitive stories. People who felt less confident were also likely to be concerned about judgement or ridicule. It was also noted that what is considered sensitive or taboo changes over time (for example, health, disability, sexuality), which might particularly concern older people. Others may only feel ready or safe to share towards the end of their lives.
Concerns about safety. It was noted that Belfast is a small place. While steps could be taken to protect anonymity, this is not always possible. This may be of particular concern to people from the LGBTQ+ community and people of different political opinion.
Lack of trust. This includes in Belfast City Council, the motivations behind Belfast Stories and how stories would be collected, edited or displayed, including used for political purposes or as part of divisive narratives.
Lack of confidence or not feeling that a story is interesting or worth telling or that a person has a story at all. This may be more likely to affect younger people, women and people, particularly women, from minoritised ethnic communities.
Feeling that their story was not relevant. This includes people not born in Belfast.
Feelings of exclusion: that their story would not be welcomed, valued or used as it does not align with received narratives. Protestant communities were described (at an engagement session in a predominantly Protestant area) as “more sceptical”. It was also considered that Belfast Stories could redress a perceived bias that Protestant communities have fewer stories.

Consultees conveyed a strong sense of urgency not to delay gathering the rich and varied stories of older people.

Operating model

At this stage, the long-term operating model for Belfast Stories is still in development. While consultees were not asked for their opinion, there was a high level of interest. Suggestions pertinent to equality of opportunity and promotion of good relations in the long-term include:

Use of social clauses, employment academies, training programmes and apprenticeships targeting young people, disadvantaged groups and those seeking to upskill
Local community partnerships
Including community representatives and young people in the governance structure
Extended and flexible opening hours supporting people with sensory sensitivities or anxiety
Quiet hours
Free or discounted entrance fees, in particular for pensioners and young people
Free tickets for carers or companions of disabled visitors
Effective marketing considering different audiences including disabled people and older people

City centre context

While respondents were pleased about investment in this part of Belfast, the main barrier identified to Belfast Stories was the wider city centre, which was considered to be rundown, unattractive and unsafe, particularly among younger people, older people, parents, carers and women.

Suggested solutions or mitigation included:

Creating a pedestrian plaza around the building
Street cleaning
Lighting
Addressing uneven paving (particularly for wheelchair and mobility aid users, older people and people with visual impairments)
Pedestrianising Royal Avenue
Renewing the arterial routes leading to Belfast Stories including from York Street Station, to the North and West and along Royal Avenue
Addressing the prevalence of social issues such as homelessness and drug and alcohol use
Working with local pubs and clubs

Travel and transport

Another major barrier cited frequently by consultees was getting to Belfast Stories. Issues and concerns included:

Parking. There must be adequately size and sufficient disabled parking bays, and consideration must be given to the path users will then take to get easily and safely in to the building.
Drop-off. This was particularly important, perhaps more important than parking, for carers, disabled people and families. Ideally, drop-off points should be supported by nearby parking.
Public transport. Public transport is particularly important for older people and younger people who may not have access to a car.
Minibus. It was suggested that there should be a minibus that could take people to and from Belfast Stories and key city centre locations (for example, City Hall or the Visit Belfast Welcome Centre). This would be particularly valued by carers and people with limited mobility.
Pathways. The way to Belfast Stories should be well signposted and well lit. Pavements need to be even, and there should be step-free access along main routes with drop kerbs at crossings and disabled parking bays.

Footnotes

Footnote five: Practical Guidance on Equality Impact Assessment, Equality Commission for NI, 2004 (p.36)

Footnote six: See appendix 2

Footnote seven: n=97 unless otherwise stated

Footnote eight: n=97 unless otherwise stated

Footnote nine: These responses referred generally to environmental impact, parking and public transport, security, poverty and social class.

Footnote ten: Market for Craft report; https://www.craftscouncil.org.uk/insight-and-advocacy/research-library/market-for-craft; Increasing Resilience in the Craft Sector: https://craftni.org/increasing-resilience-in-the-craft-sector-post-covid/; 2024 Arts Council of Northern Ireland Evaluation of the Working and Living Conditions of Artists in Northern Ireland; https://artscouncil-ni.org/resources/working-and-living-conditions-of-artists-in-ni; Four Reasons Why Craft is Good for your Mental Health: Crafts Council, England: https://www.craftscouncil.org.uk/stories/4-reasons-craft-good-your-mental-health; An introduction to the new WHO evidence report on arts and health - by Daisy Fancourt"

Footnote eleven: There is some mismatch between comments and scores indicating that some people interpreted 1 to be negative and 5 to be positive.

Footnote twelve: The Belfast Agenda Voluntary, Community and Social Enterprise Sectoral Advisory Panel, Belfast Buildings Trust and Belfast Civic Trust

Footnote thirteen: Where Autistic people and people with learning difficulties could learn about money and social interaction in a safe, supportive space

Footnote fourteen: n=484

5. Consideration of alternative policies and mitigating actions

7. Conclusions

Back to site