Executive summary
Between 10 August and 20 November 2022, Belfast City Council carried out a 14-week public consultation on Belfast Stories, a new visitor attraction due to open in the city centre in 2028, and its accompanying equality impact assessment (EQIA).
This EQIA final decision report sets out:
- the initial findings from the draft EQIA report
- the results of the consultation process
- conclusions
- recommendations for monitoring any adverse impacts
About Belfast Stories
Funded by the Belfast City Region Deal and Belfast City Council, Belfast Stories will open at the former Bank of Ireland buildings, 92 Royal Avenue (where North Street and Royal Avenue meet) by 2028. It aims to attract both tourists and locals while helping to regenerate the city and surrounding areas.
There are three main parts to the visitor centre: stories, screen and social.
1. Stories
These will be first-person accounts of the city. The stories will be discovered through an ambitious citywide story collection programme that will include:
- uncovering the stories that are already held by museums, archives, local history groups, communities and others
- collecting new stories, particularly those people and groups whose stories may not yet have been heard
The stories will be exhibited using a range of media in 2,000m2 of exhibition space including a library of stories, a main exhibition space and temporary exhibition spaces. Visitors will be guided through the space by a trail which will end at a viewing platform on top of the building where they can reflect on the story of the whole city.
2. Screen
Belfast Stories film centre will house a state-of-the-art five-screen cinema offering and NI’s digital screen archive. The film centre will also support the local film industry with developmental space, flexible learning spaces and a story lab. There will be a particular focus on children and young people.
3. Social
The exhibition space and film centre will be connected by public spaces where people can meet, eat, shop and relax. These will include:
- a central open-air courtyard
- pocket squares and laneways
- roof gardens
- cafes, restaurants and bars sharing local produce and cuisine – Belfast’s “food story”
- shops selling local products
The story collection principles and themes
The purpose of the framework for gathering stories is to help gather, sort and celebrate a wealth of Belfast stories without being constraining. There are seven themes, each with between 11 to 16 subthemes. Stories can be about the past, present or future. Stories may fit under more than one theme. If stories do not fit under a particular subtheme, a new one can be created.
About the engagement process
The public consultation
The 14-week public consultation focused on:
- raising awareness of Belfast Stories so that people are excited and want to continue to be engaged in its development and
- gathering ideas and evidence to help shape the design brief to make sure that the building is welcoming and accessible and everyone can see themselves reflected in its stories
An online consultation hub was created on Belfast City Council’s Your Say platform. It included a survey inviting feedback on the Belfast Stories proposal and draft EQIA and copies of the consultation document in a range of formats including HTML, Easy Read, British Sign Language (BSL) and Irish Sign Language (ISL).
The council’s Equality Scheme consultees were notified of the public consultation and draft EQIA and invited to comment. The Belfast Stories equity steering group, comprising 10 experts by experience (including people from Black, Asian, Middle Eastern, inner city, working class and LGBTQ+ backgrounds; older and younger people; disabled and neurodiverse people; and people with caring responsibilities) met four times. Sixteen workshops were facilitated with people and groups who are generally less heard or more at risk of missing out, and 10 one-to-one meetings were held with organisations representing or advocating for such people or groups.
There were 31 workshops with the film, tourism, arts, heritage, voluntary and community, Irish language and public sectors, engaging 238 representatives.
In August 2022, Belfast City Council appointed thrive, the audience development agency for NI, and Daisy Chain Inc, a creative consultancy, to help raise awareness and build excitement including through on-street interviews, events and workshops. They engaged a total of 683 participants.
There were also four public meetings in the north, south, east and west of the city, which were attended by 15 participants.
Leaflets and information were distributed across the city including pop-ups and display boards exhibited at a range of venues.
Written submissions were also received from seven organisations.
Ongoing engagement
The Belfast Stories engagement plan sets out plans for ongoing engagement structured around four work strands:
- Equity. Equity recognises that not everyone starts from the same place. It gives people the different resources and opportunities they need to take part.
- Sustainability. The purpose of this strand is to make sure that Belfast Stories is green and sustainable. It will bring together environmental, tourism, culture and economic development stakeholders.
- Partnership. A stories network will be open to any organisation with an interest in Belfast Stories.
- Experiences. This strand will bring together stakeholders around the stories, screen and social elements of the concept.
There are also two more planned public consultations: on the concept design and as part of planning permission.
Consideration of available data and research
This section provides an overview of the data and research that was considered in the draft EQIA report.
Demographic make-up of Belfast’s resident population
The draft EQIA provided a breakdown of Belfast’s resident population drawn from the most up-to-date data available when the draft EQIA report was being prepared.
Council policies and strategies
The draft EQIA provided an overview of relevant Belfast City Council policies and strategies. This included its:
- Equality Scheme (2021)
- Language Strategy (2018)
- Good Relations Strategy (2019)
- Belfast Agenda (2017)
- Corporate Plan (2019)
- City Centre Regeneration and Investment Strategy (2015)
- A City Imagining cultural strategy (2020)
- Make Yourself at Home tourism strategy (2022)
- Consultation and Engagement Framework (2020)
Findings from consultation to date
Engagement around the concept of a Belfast Stories has been ongoing since 2014 when the need for a second major visitor attraction in the city was identified. Belfast Stories has subsequently been formally consulted on during a range of public consultations. The concept was broadly welcomed. Findings relevant to the draft EQIA included:
- Cost may be a barrier, particularly to families and younger people
- Transportation can be a barrier, particularly for older people
- Need to follow inclusive design principles
- Equality considerations should “go beyond” the statutory requirements
Equality framework
Belfast Stories’ Equality Framework was developed in 2021. It recognises that the project’s vision cannot be achieved unless equality, diversity and inclusion are placed at its core and supported by co-design and an inclusive process throughout all stages of development.
It recommends that engagement be:
“an ongoing cumulative process, enabling relationships, building trust and strengthening links over time […] Residents, voluntary and community groups, specialists and concerned or interested individuals, may want to participate at a range of levels – from providing advice to co-designing the process, undertaking some aspects of the engagement to delivering projects to meet some of the outcomes.”
It also recommends that equality screening and impact assessments should be carried out at different stages and on different elements of the project.
Equality screening
Belfast City Council’s equality screening of the Belfast Stories outline business case found that:
“There is nothing inherent in the principles underpinning the concept of the Belfast Stories to indicate an adverse impact on one or more of the Section 75 groups. Instead, the concept will follow inclusivity principles for all residents and visitors […] will bring about advantages to Belfast citizens irrespective of their identity.”
However, it continues “The Belfast Stories aspects of this project needs to ensure equal representation of residents and visitors of different [identities]”. It recommended that an EQIA should be carried out, potentially at key milestones such as concept, design and content stages.
Consultation on the draft framework for gathering stories
A draft framework for gathering stories was developed by Lord Cultural Resources in 2021 in consultation with over 50 stakeholders including representatives from museums, libraries, archives and other collections. Consultees identified voices that are more likely to be missing from or underrepresented in current stories and collections.
Engagement with culture among equality groups
Belfast Stories will use expressions of culture to attract visitors. The draft EQIA considered how different people and groups across the different Section 75 equality categories may engage differently with culture.
Assessment of impacts
In accordance with the EQIA process, having gathered information on the policy and those affected, Belfast City Council then assessed:
- whether there is likely to be a differential impact on one or more of the equality groups;
- the extent of differential impact; and
- whether that impact is adverse.
In the draft EQIA report, Belfast City Council considered the following potential impacts.
Barriers that particular groups face to activity that is similar in nature to Belfast Stories include emotional barriers (such as anxiety or discomfort); interest barriers (not relevant, don’t know what’s available); practical barriers (cost, transport); and societal barriers (racism, ableism).
The Belfast Stories’ Equality Framework established the broad parameters to help ensure that barriers are removed and equality, diversity and inclusion remain at the heart of the project’s development.
Belfast Stories’ engagement plan and draft framework for gathering stories builds on this foundation. These identify groups who are less likely to access or feel represented in Belfast Stories and sets down a range of actions to mitigate potential differential impact.
Central to this is the equity steering group, which brings together representatives from the nine equality groups to co-design further engagement and opportunities to promote equal opportunities and good relations. This group will also support the wider engagement plan and influence the design of the building and plans for the collection, curation and exhibition of its stories, making it accessible, welcoming and representative for all.
Other planned mitigations include:
- a concentrated period of public consultation aimed at making the building welcoming and accessible and ensuring everyone can see themselves reflected in its stories
- consultation with the council’s Equality Consultative Forum and other key organisations representing protected groups of people not engaged through any other method
- information available in written, visual and Easy Read formats and other formats on request
- a range of tailored engagement tools from online surveys and quizzes to focus groups, creative workshops and hard-hat tours
- substantial ongoing engagement including around the theme of equity
- further public consultation and equality screening
- monitoring engagement across different Section 75 groups
The assessment of impacts in draft EQIA concluded that with equality, diversity and inclusion embedded in its development and extensive planned engagement including around the theme of equity, Belfast Stories has the potential to have a positive impact on equality of opportunity and good relations across all Section 75 categories.
The public consultation welcomed further evidence of any impacts on Section 75 groups, which would be collated and analysed to produce this final EQIA decision report.
Summary of consultation responses
Survey responses in relation to the draft EQIA
One hundred and twenty-seven people responded to the survey on the Your Say Belfast consultation website.Footnote one Of those, 50 answered questions specifically on the draft EQIA.
50 per cent of respondents agreed with the assessment of impacts; 8 per cent disagreed; and 30.0 per cent responded, “Don’t know”.Footnote two Reasons given by those who disagreed with the assessment of impacts were:
- “not all sides get listened to.”
- “Let’s break down the various communities and see what might appeal to the public at large. Taxpayers that vote in the council and pay for it. The project must cater to those that have shaped Belfast”
- “I have not read into the policy and data to make my own mind up on this question. Further open access research needs to be available and open to public.”
There were 17 responses to the question “Are you aware of any other impacts that we haven't identified?” including 11 responses (64.7 per cent) stating that they could not identify additional impacts. One response reinforced the opportunity to improve good relations.
There were 14 responses to the question “Are you aware of any other evidence or research that may be relevant to Belfast Stories impact assessment?”. Of these, 11 (78.6 per cent) were unaware of additional evidence.
There were 25 responses to the question “What else could we do to promote equality of opportunity and good relations?”. Accordingly:
- 7 responses emphasised the importance of consultation and engagement, and 4 listed additional groups they felt should be engaged. There were homeless people, care homes, “advocacy agencies” and primary schools.
- 2 respondents emphasised the need for ongoing monitoring and evaluation
- 2 responses felt that Belfast Stories should be wider than Belfast
- Suggestions to promote good relations included ensuring there is political balance; using arts and festivals to promote good relations; and challenging received narratives.
Relevant findings from wider engagement
The following section summarises relevant findings from the overall public consultation including the survey, meetings, workshops, focus groups and interviews.
Building the excitement
Across all engagement strands, there was remarkable excitement about the concept of Belfast Stories. For example, in survey responses, 81.6 per cent of survey respondents said they were excited about Belfast Stories, with 43.2 per cent saying they felt “very” excited.Footnote three
Reasons people felt excited included:
- recognition of an opportunity to change the usual negative, narrow or “us and them” narrative of Belfast. (“Think it's a great opportunity to tell stories of the city and its people that transcend tired and unrepresentative binary views.”)
- a potential boost to pride at both civic and individual level particularly among Section 75 groups
Among those who were not excited or disagreed strongly with the concept, the main concern was that the investment would be better spent elsewhere or is diverting funding from other priorities, such as preserving other heritage buildings.
Barriers that would stop people visiting the building
Across all engagement strands, barriers identified that would stop people accessing the building included:
- Cost
- That the building might not be welcoming “for the likes of us” including young people and people from minoritised ethnic communities
- Lack of activity for children and families
- Safety and fear of anti-social behaviour. This was a greater issue for older people, disabled people and people from minoritised ethnic and LGBTQ+ communities.
- Transport. This was a major concern, particularly among older people, disabled people, minoritised ethnic communities, carers and people living in working class areas.
- Building design. This was of particular concern to older people, neurodiverse people and disabled people.
- Unilingual signage. This was felt to be a particular barrier for the Irish language community.
For carers and disabled people, a good practice buddy ticketing system was considered essential. It was also felt that older people may need more encouragement to go out after the pandemic.
Barriers that would stop people visiting the exhibition
Barriers identified across all engagement strands that might stop people enjoying the exhibition included:
- Cost
- Lack of interest or relevance
- Different language and literacy abilities
- Triggering content, including “Dark stories” that could traumatise or retraumatise, flashing images and loud noises
- Lack of outreach
- Marketing that is not inclusive of diverse communities
Barriers that would stop people telling their stories
The survey asked, “What might stop you telling your story?”. The most frequent barrier identified related to perceived lack of inclusivity, identified by 18 people, followed by “Nothing”, identified by 14 people.Footnote four
In practice, during workshops and other in-person engagement, the vast majority of people were very willing to tell their stories.
Generally, young women appeared more reticent than young men, and women more reticent than men in general.
Some people indicated that they would be more comfortable telling their story to another person. This would help overcome barriers including different literacy and language abilities. Others would like to write or record their own story privately, particularly those with sensitive or traumatic stories to tell. Group dynamics helped some overcome initial reticence.
While the majority of participants in the consultation had little reticence sharing their stories with the facilitators during the public consultation (who were generally unknown to the participants), many of the workshops were organised or supported by trusted intermediaries, whether a local community group or respected individual “of” that community, which helped reassure participants.
Some would be happy to have their words used, but not their voice (because they dislike the sound of their voice on recordings); others would be happy to have their voice used, but not their face. Several consultees, particularly among minoritised ethnic groups and young people, wondered whether they could use an avatar instead.
There was concern that the collection process could be difficult or cumbersome, particularly for those with different literacy or memory loss.
Another barrier that emerged through in-person engagement was storytelling fatigue. Many people’s stories have already been collected through community groups, reminiscence projects and so on. In general, participants indicated they would prefer that this activity is shared or showcased, rather than stories recorded anew.
People at particular risk of missing out
The role of the community and voluntary sector as trusted intermediaries to engage people, was emphasised throughout the consultation.
Over two thirds of survey respondents (68 per cent) agreed that we had identified the right people to be part of the equity steering group. Other suggestions for the equity steering group included:
- Migrant communities
- People with refugee status or seeking asylum
- Men
- Middle-aged men
- The very elderly
- Students
- People of no faith
- Integrated education alumni
- Irish speakers
- Those who no longer live in Belfast or NI
- Parents
- Foster carers and guardians
- Younger children
- People with care experience
- Underprivileged children
- Long-term unemployed
- Different socio-economic classes, in particular people living in poverty
- “Normal working every day people”
- “Less educated people who struggle to read large blocks of text”
- Blind people
- People with dementia
- People from geographic communities
- People living at interfaces
- Homeless people
- Drug addicts
- Tourists
- People who are not affiliated to groups
Some respondents considered more “professional” expertise would be advantageous. Others were concerned that the equality focus was misguided or that the steering group was “box ticking” or “woke”.
Responses in relation to the Irish Language
Belfast City Council hosted an Irish language consultation session, which was attended by 19 representatives. There were also three written submissions on behalf of the Irish language sector.
Consultees “warmly welcome[d]” Belfast Stories and were “hugely encouraged by the commitment to include diverse stories representing the different identities and people that make up our wonderful city”. However, there were concerns that “the Irish language community have been, so far, completely omitted from the Belfast Stories concept”.
Consultees considered that including Irish language in Belfast Stories would welcome the Irish language community while fostering good relations by “normalising the language”.
While there was recognition that Irish as a native minority language should not be categorised with other minority groups, it was also suggested that there should be “members of the Irish language community on the project’s equity steering group, given that all other minority groups across the city are represented.”
Other suggestions from the Irish language sector included:
- That Irish language is woven throughout the Belfast Stories themes, including celebration, diversity, education and the story of the language itself.
- There should be bilingual resources throughout Belfast Stories including external and internal signage, exhibitions, marketing and other materials.
- The council should develop and implement a language screening assessment for all new council policies, practices and projects.
Responses in relation to Ulster Scots
A meeting was held with the Ulster Scots Agency, and other interest groups also participated in a consultation workshop.
The opportunity to foster further understanding the cultural identity of Ulster Scots was broadly welcomed. It was felt that this should include stories of the language, of “celebrated” and “lesser known” individuals, of industrial heritage and diaspora and international connections.
In general throughout the public consultation, there was concern that there could be an imbalance or bias in content and presentation. One consultee also welcomed further reflection of other Ulster identities and ancestries (for example, Anglo-Ulster, Franco and Italianate).
Conclusions
This information has been brought together in this report in order to ensure that Belfast City Council is in a position to take account of all issues when making a decision in relation to Belfast Stories. The following analysis of the key points arising from the EQIA and the consultation responses is provided to assist the council, but it is not exhaustive and is not meant to be a substitute for the detailed information presented in this report.
Support for the Belfast Stories concept
During the public consultation, Belfast Stories’ engagement plan ensured that Belfast City Council gathered feedback across a broad range of equality groups, and there were exceptionally high levels of support, including across all Section 75 equality categories. Many consultees also reflected on the potential positive impact on equality of opportunity and good relations.
Nevertheless, there were concerns that Belfast Stories could present a partisan, binary or narrow perspective of Belfast that would exclude the stories or identities of particular groups. The council should continue to embed equality, diversity and inclusion in the development of Belfast Stories, ensuring that early potential for positive impact can be realised throughout the project design, delivery and implementation.
Ongoing engagement
During the public consultation, consultees offered further insight in relation to groups of people at risk of missing out and tactics to mitigate potential differential impact.
Tactics to engage people at risk of missing out are considered and included in the engagement plan. Ongoing engagement should continue to focus on those most at risk of missing out, and the engagement plan and stakeholder mapping should be reviewed and revised in light of lessons learned and additional evidence uncovered during the public consultation.
Story collection
Belfast City Council plans to start story collection in summer 2023. The engagement plan includes recommendations for engaging around story collection. This should focus on action learning by testing processes and tools with groups that are less likely to share stories (because of their culture, identity or circumstance), in particular older people and the very elderly whose stories are otherwise at risk of being lost.
Irish and Ulster Scots
The Belfast Stories concept was broadly welcomed by the Irish language community as an opportunity to explore and celebrate the history of the language and the city’s Irish language community. This may in turn enhance good relations by affording respect and recognition to a native minority language in keeping with local and international policy and best practice.
Belfast City Council should continue to consult closely with Irish language and Ulster Scots stakeholders, including in relation to the development of the building, story collection, exhibition and overall experience. Resulting language policy or practice should be subject to an equality screening and (if required) a full equality impact assessment.
Monitoring for adverse impact
Schedule 9 of the Northern Ireland Act 1998 requires that a system be established to monitor the impact of the final policy in order to find out its effect on the relevant groups within the equality categories.
Belfast City Council plans to continue to monitor impact throughout the development of Belfast Stories and review it at least annually including:
- at the end of this public consultation period, when the draft EQIA report will be revised, taking into account comments received during the consultation, and a final EQIA report will be prepared for Belfast City Council. The results of the EQIA will be published on the council’s website and intranet and in its annual report to the Equality Commission.
- in summer/autumn 2023 when a report on this stage of the engagement process (design brief to concept design) will be prepared and published on the council’s website
- in 2024 when a further equality screening will be carried out in advance of a public consultation on the concept design
- in 2025 when a further equality screening will be carried out as part of the planning permission and public consultation process
The results of monitoring will be included in Belfast City Council’s annual review on progress to the Equality Commission and in line with the council’s Equality Scheme. If the monitoring and analysis over a two-year period show a greater adverse impact than predicted or if opportunities arise which would allow for greater equality of opportunity to be promoted, Belfast City Council will take measures to achieve better outcomes for the relevant equality groups.
Footnotes
Footnote one: See appendix 6 for a list of organisations that responded via the survey
