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PALGRAVE
STUDIES IN
COMPROMISE
AFTER CONFLICT
Series Editor
John D. Brewer
Queen’s University Belfast
Belfast, UK
Stellenbosch University
Stellenbosch, South Africa
This series aims to bring together in one series scholars from around the
world who are researching the dynamics of post-conflict transformation in
societies emerging from communal conflict and collective violence. The
series welcomes studies of particular transitional societies emerging from
conflict, comparative work that is cross-national, and theoretical and con-
ceptual contributions that focus on some of the key processes in post-
conflict transformation. The series is purposely interdisciplinary and
addresses the range of issues involved in compromise, reconciliation and
societal healing. It focuses on interpersonal and institutional questions,
and the connections between them.
This Palgrave Macmillan imprint is published by the registered company Springer Nature
Switzerland AG
The registered company address is: Gewerbestrasse 11, 6330 Cham, Switzerland
General Editor’s Introduction
v
vi GENERAL EDITOR’S INTRODUCTION
political groups and the state in the process of state-building (or re-
building) after the political upheavals of communal conflict; the second is
about compromises between individuals and communities in the process
of social healing after the cultural trauma provoked by the conflict.
This book series primarily concerns itself with the second process, the
often messy and difficult job of reconciliation, restoration and repair in
social and cultural relations following communal conflict. Communal con-
flicts and civil wars tend to suffer from the narcissism of minor differences,
to coin Freud’s phrase, leaving little to be split halfway and compromise
on, and thus are usually especially bitter. The series therefore addresses
itself to the meaning, manufacture and management of compromise in
one of its most difficult settings. The book series is cross-national and
cross-disciplinary, with attention paid to inter-personal reconciliation at
the level of everyday life, as well as culturally between social groups, and
the many sorts of institutional, inter-personal, psychological, sociological,
anthropological and cultural factors that assist and inhibit societal healing
in all post-conflict societies, historically and in the present. It focuses on
what compromise means when people have to come to terms with past
enmity and the memories of the conflict itself, and relate to former pro-
tagonists in ways that consolidate the wider political agreement.
This sort of focus has special resonance and significance for peace agree-
ments are usually very fragile. Societies emerging out of conflict are sub-
ject to ongoing violence from spoiler groups who are reluctant to give up
on first preferences, constant threats from the outbreak of renewed vio-
lence, institutional instability, weakened economies and a wealth of prob-
lems around transitional justice, memory, truth recovery and victimhood,
amongst others. Not surprisingly, therefore, reconciliation and healing in
social and cultural relations are difficult to achieve, not least because inter-
personal compromise between erstwhile enemies is difficult.
Lay discourse picks up on the ambivalent nature of compromise after
conflict. It is talked about in common sense in one of two ways, in which
compromise is either a virtue or a vice, taking its place among the angels
or in Hades. One form of lay discourse likens concessions to former pro-
tagonists with the idea of restoration of broken relationships and societal
and cultural reconciliation, in which there is a sense of becoming (or
returning) to wholeness and completeness. The other form of lay dis-
course invokes ideas of appeasement, of being compromised by the conces-
sions, which constitute a form of surrender and reproduce (or disguise)
continued brokenness and division. People feel they continue to be beaten
GENERAL EDITOR’S INTRODUCTION
vii
by the sticks which the concessions have allowed others to keep; with res-
toration, however, weapons are turned truly in ploughshares. Lay dis-
course suggests, therefore, that there are issues that the Palgrave Studies
in Compromise after Conflict series must begin to problematise, so that
the process of societal healing is better understood and can be assisted and
facilitated by public policy and intervention.
In this latest volume in the Series, we address the classic form of com-
promise in a peace process, the 1998 Good Friday or Belfast Agreement in
Northern Ireland, in which the respective parties gave up on their first
preferences for a negotiated settlement. The fact that the parties over time
could not agree its name did not bode well and some factions have kept
loyal to first preferences; on the one hand to compel constitutional change
by force by bombing and killing their way into a United Ireland and on
the other to keep Catholics as second-class citizens in a Protestant parlia-
ment for a Protestant people. The deal went through several iterations,
and the centre ground eventually collapsed, with Sinn Fein and the
Democratic Unionist Party (DUP) emerging as the dominant parties to
govern the power-sharing executive. The consociational system delivered
what none of the negotiators at the time expected, with the two outer-
lying parties coming best to represent the ethno-national identities that
consociationalism preserves.
Paradoxically, the system worked best when, finally, the Rev. Dr. Ian
Paisley of the DUP agreed to implement the Agreement, even though the
party was not one of the original signatories, and to develop a very suc-
cessful power-sharing arrangement with the late Martin McGuinness of
Sinn Fein. It is ironic that the quality of this political relationship never
survived Paisley’s death. The power-sharing executive is currently sus-
pended and a form of reluctant direct rule is looming; it remains to be
seen whether direct rule takes the form defined under the Agreement
where both Dublin and London governments rule together via the British-
Irish Intergovernmental Council and Secretariat. The parity of esteem
issues that finally provoked the collapse of the power-sharing executive in
January 2017, and in particular legal recognition of the Irish language,
seem to pale in comparison to this form of joint authority, which the DUP
will find it even harder to accept, so the future of the Agreement remains
uncertain and unsettled.
As the Agreement comes to its twentieth year in 2018, it seems to be at
its lowest ebb. An assessment of its legacy is thus very timely. Opponents
to the Agreement within the Unionist community have been emboldened
viii GENERAL EDITOR’S INTRODUCTION
The editors are grateful to the faculty of Humanities and Pedagogy at the
University of Agder, Norway, for providing financial support that made
this book possible.
We are also grateful to Green Shoot Productions for giving us permis-
sion to reproduce the images from the play Meeting at Menin Gate, writ-
ten by Martin Lynch. The photographs were taken by Elaine Hill.
ix
Contents
1 Introduction 1
Charles I. Armstrong, David Herbert, and Jan Erik Mustad
xi
xii CONTENTS
Index 291
Notes on Contributors
xv
xvi NOTES ON CONTRIBUTORS
xix
List of Tables
xxi
CHAPTER 1
Introduction
last, being brought to an end. The process leading up to the signing of the
agreement had been gruelling. Many years of negotiations—including
milestones such as the Sunningdale agreement (1973), the Anglo-Ireland
Agreement (1985) and the Downing Street Declaration (1993)—had
passed, without yet leading to any final cessation of the violence. Despite
much progress, one commentator noted as late as 1997 that a ‘quantum
ideological leap’ was still necessary for peace to come about (Hennessey
1997, 300). After Tony Blair’s being elected the British Prime Minister in
May 1997, a new series of talks began in September of the same year.
There was a renewed gravity hanging over the talks, as the parties in
Northern Ireland knew what an enormous mandate the electorate had
given Blair. The new prime minister was adamant that a deal had to mate-
rialize; if it did not, direct rule might prevail for many years to come. The
majority of the political parties realized the new urgency and wholeheart-
edly participated in talks, often in fear of being left behind without any
influence on Northern Ireland’s future. With Blair’s new mandate, there
were no groups or parties that could hold the process to ransom, as former
Prime Minister John Major experienced in the early 1990s.
On the celebrated day in April 1998, a long process—culminating in
36 hours of non-stop, intensive negotiating—was concluded with a jubi-
lant, but still somewhat measured press conference involving Blair and
the Irish Taoiseach Bertie Ahern. Blair declared that ‘Courage has tri-
umphed!’, while Ahern spoke of ‘a day when agreement and accommoda-
tion have replaced days of difference and division’ (De Breadun 1998).
There had been niggling questions and rugged resistance surrounding the
final, dramatic push for peace, including the high-profile opposition of the
Democratic Unionist Party (DUP) leader, Ian Paisley, and a last-minute
walk-out by the Ulster Unionist Party negotiator, Jeffrey Donaldson. But
on 10 April, there must have been a sense that all this opposition had been
vanquished. Blair would later admit that he had felt ‘a trifle dumbfounded,
wondering if we were in a dream’ (Blair 2010, 199). On the other hand,
Sinn Féin representative Gerry Adams has written of a sense of anti-climax,
feeling ‘slightly deflated by the size of the task that lay before us’ (Adams
2003, 367). Sceptical voices were far from absent, and the key negotiators
and parties involved—such as Blair, Adams, and the Social Democratic
and Labour Party leader, John Hume—were not unaware of the fact that
much work remained to be done. Yet the promise and the hope of peace
were still there, signifying a resurrection of sorts, and a strong desire
for normality for a society that had been subjected to a heavy toll of
INTRODUCTION 3
loodshed and dissension over a long period of time. In the words of the
b
opening Declaration of Support of the agreement, what was needed was
‘a fresh start’ (The Agreement, unpaginated).
How far can the 1998 agreement be said to have, in fact, paved the way
for such a fresh start, and what is the legacy of the agreement? Has it lived
up to the hopes of its most enthusiastic supporters or has, quite to the
contrary, the historical record proven the nay-sayers and doubters were
right all along? What, in fact, was the substance of the agreement finalized
at Stormont, and what have been the most significant adjustments and
additions of the 20 years passed since then? And what happens when one
looks at the Troubles and the attempted resolution of the conflict in a
wider lens, which not only includes the political players, parties and trea-
ties involved but also includes a wider circumambient field of culture and
art? These are key questions for this book, which uses a multidisciplinary
approach to address the Good Friday Agreement and its afterlife in depth.
Interpretations have varied on what the agreement amounted to, how
it was constructed and subsequently ‘sold’ to the different communities.
The differences are not only between Republican, Nationalist, Loyalist and
Unionist accounts—but also stem from the vantage points of the different
nations involved, as well as differing views within the nations and commu-
nities that have a stake in the negotiated peace. In part, this situation has
been caused by the creative ambiguity of the wording of the text and the
top-down approach of the whole process. In the words of Colin Coulter
and Michael Murray, who highlight differences in the publication format
of the text prior to the referenda in May 1998: ‘There are, depending on
how you look at it, quite a few Belfast Agreements’ (Coulter and Murray
2008, 12). The resulting multiplicity of meaning is perhaps a precondition
for the Good Friday Agreement having a peculiarly speckled afterlife.
According to Jacques Derrida, there ‘is legacy only where assignations are
multiple and contradictory’ (Derrida 2002, 111). The multifarious legacy
of 1998 is imbricated in the complexity of the event itself—of the Good
Friday Agreement—that entails that it cannot, without considerable vio-
lence, be reduced to a single, teleological narrative. Seamus Heaney has
spoken warily of the term ‘peace process’ being applied to Northern
Ireland, declaring that peace in the region ‘[…] was always going to be a
rigged-up, slightly rickety affair: something ad hoc and precariously in the
balance, depending at once on great stealth and great boldness by indi-
viduals on both sides. There’s something too foreclosed about calling it
a “process”, as if all you had to do was to initiate certain movements
4 C. I. ARMSTRONG ET AL.
or exchanges and the whole thing would work itself out in theory and in
practice’ (O’Driscoll 2008, 351–2).
If this observation is perspicacious with regard to the developments
leading up to the Good Friday Agreement, it is even more salient in light
of subsequent events. The best laid plans of women and men have proved
to have unforeseeable consequences. The shifting grounds of history have
created a very different political landscape from that of 1998, in a period
that has included international events such as 9/11 and Brexit, as well as
political polarization that has gradually strengthened the positions of Sinn
Féin and the DUP.
Unsettled Peace
The referendum held on the Good Friday Agreement showed consider-
able opposition to the settlement. The political opposition was voiced by
supporters of the DUP and other minor unionist parties, while the clear
majority of the Nationalists supported the Agreement. This would find
electoral expression in the assembly elections in 1998 and 2003, when the
DUP strengthened its position and outmanoeuvred the Ulster Unionist
Party becoming the largest unionist party. The new dawn created after
1998 quickly saw darker clouds flocking to the horizon and put the imple-
mentation processes of the Agreement into jeopardy. As Coulter and
Murray note: ‘A genuine resolution to the conflict will necessarily entail a
massive redistribution of resources and opportunities. If there is truly to
be peace in Northern Ireland, those working-class communities that have
endured most during the war will have to feel that their interests are being
served and their voices heard’ (Coulter and Murray 2008, 23).
In recent years, much research has been conducted on post-Good
Friday Agreement Northern Ireland. Political accounts have attempted to
show the political impasse that took place and, to some extent, is still tak-
ing place. Collections of essays, like Coulter and Murray (2008) and Fox
et al. (2000/2006), have tried to capture the shifting and complex reali-
ties of Northern Irish society after 1998. Bew et al. (2002) have given
nationalist accounts of political forces and social classes and Arthur Aughey
(2005) has examined the political landscape beyond the Agreement.
Monographs and articles have been written on the new political and social
dimensions with notable contributions from Tonge (2005), McAuley
(2010 and 2011 with Tonge and Mycock), Dixon (2008) and McGrattan
(2010). The latter breaks new ground in an attempt to illuminate how
INTRODUCTION 5
Northern Irish society is rapidly changing and the chapters that follow
try to capture the complex and at times often contradictory progress that
has taken place in the last two decades. On the one hand, Northern Ireland
has moved forward in many respects and in many different fields, yet on
the other hand, there are areas where Northern Ireland has experienced
standstill and stalemate.
The chapters and their authors come from a variety of academic disci-
plines and are all experienced scholars within their fields. The collection is
divided into four parts. Part I looks at the political discussions and devel-
opments leading up to the Good Friday Agreement and its aftermath. It
examines key players and how the different perspectives of these players
create and contribute to shaping of events, crucial for an understanding of
post-Good Friday Agreement society. In Part II, focus shifts to an analysis
of how different social groups form their own identities in response to
political developments. Part III takes a cultural and literary approach and
examines how artistic narratives contribute to a fuller understanding of
Northern Irish society. Finally, Part IV investigates and questions the
peace processes in the plural and discusses how future scenarios of the
‘unsettled’ peace can become more ‘settled’.
The opening chapter (Chap. 2) by Eamonn O’Kane and Paul Dixon
underlines the controversies of the peace process and shows how differ-
ently the actors interpreted the negotiations, the actual Agreement and its
aftermath. Generally, the chapter provides an overview of the peace pro-
cess and at the same time pinpoints how negotiations were performed
both on stage and behind the stage. Chapter 3 by Dixon argues that the
peace process was full of deceptions and ‘dirty politics’ for the purpose of
advancing the peace. Dixon claims that this pragmatic realist approach was
necessary to drive the process forward and that Tony Blair’s deceptions
were ‘honourable’ as a means to obtain peace. The chapter presents evi-
dence of this ‘honourable deception’ and that power sharing between the
hardline parties after St Andrews was an unintended but fortuitous out-
come of the peace process.
In Chap. 4, Charles I. Armstrong’s ‘“George Mitchell’s Peace”: The
Good Friday Agreement in Colum McCann’s Novel TransAtlantic’ uses a
novel published in 2013 as a prism to inspect interpretations of the treaty
negotiations. Here not only the fictional mode and narrative techniques of
McCann’s novel but also its author’s Irish-American identity and the
historical distance are shown to affect the novelistic treatment of Senator
George Mitchell’s contribution to the peace treaty. The chapter also
INTRODUCTION 9
with whom the author has conducted fieldwork. The chapter situates this
analysis in the context of a broader discussion of role of gender in the his-
tory of the conflict, peace-making and politics in Northern Ireland.
The final contribution in Part II is Chap. 9 by Sissel Rosland. The chap-
ter is titled ‘Making Hope and History Rhyme? Dealing with Division and
the Past in Northern Ireland After the Good Friday Agreement’. In this
chapter, Rosland examines three reports dealing with division and dividing
lines in post-Good Friday Agreement Northern Ireland. She analyses how
the past, the present and future are conceptualized in the reports, in an
attempt (in the words of Seamus Heaney) to make ‘hope and history
rhyme’.
In the first chapter in Part III, Chap. 10, Seán Crosson discusses how
film has addressed the Troubles and their aftermath. His chapter ‘The
Shore (2011): Examining the Reconciliation Narrative in Post-Troubles
Cinema’ presents a critical view of how this artistic medium has depicted
the peace process. Crosson finds Terry George’s film The Shore adopting a
filiative approach, basing itself on family relations, which effectively avoids
confrontation with political realities. In his interpretation, the art of cin-
ema becomes a purveyor of tourism and financial progress instead of a
critical interlocutor in the search for peace.
Seamus Heaney is perhaps the most renowned artist associated with the
Troubles, having been awarded with the Nobel Prize in literature in 1995.
In Chap. 11, Margaret Mills Harper addresses his post-1998 poetry in
‘Elementals in Language: Seamus Heaney After the Good Friday
Agreement’. Although Harper finds Heaney characteristically steadfast in
avoiding political propaganda in order to follow his own poetic bent, she
nevertheless identifies a sense of new beginnings and hope in his verse.
Heaney’s relationship to Yeats and his use of alchemical metaphors and
motifs also point towards a complex process of analysis and recreation that
parallel the new political dispensation.
In Chap. 12, Anne Karhio interprets how a trio of younger poets have
responded to the new political climate. In ‘Finished and Under
Construction: Visual Representation and Spatial Relations in Post-
Ceasefire Northern Irish Poetry’, she focuses on issues concerning per-
spective and mediation in the verse of Leontia Flynn, Sinéad Morrissey
and Alan Gillis. Karhio’s analysis emphasizes how these poets respond to
the changing technological and financial outlook of Northern Ireland.
Her piece shows how works of literature—and indeed works of art in gen-
eral—mobilize dynamic and open-ended processes of representation,
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Gli scherzi allora, il conversar, le risa
Scoppiettavan graditi in mezzo a loro;
Però che onor l’agreste musa avesse.
22.
23. Gli Ateniesi sono così dal Poeta chiamati Thesidæ da Teseo re, che
primo ridusse dagli sparsi villaggi entro la città che circondò di mura.
25.
27.
28.
29.
30. Traduco:
31.
35. Se taluno avrà cantato innanzi al popolo, o avrà fatto carme che rechi
infamia o offesa altrui, venga punito di bastone.
36.
37.
39.
40.
41. «E che? colui che soccorse la Republica, la sostenne e rassodò tra gli
Argivi.... dubbia l’impresa, non dubitò però espor la sua vita, nè curarsi
del capo suo.... d’animo sommo in somma guerra e di sommo ingegno
adornato.... o Padre! queste cose vidi io ardere. O ingrati Argivi, o Greci
inconseguenti, immemori del beneficio!... Lo lasciate esulare, lo lasciate
espellere, ed espulso, il sopportate.»
42.
43.
44. Tom. II. pl. 3 nella nota 7. Vedi anche Plutarco Simp. IX 14.
45.
47.
48.
49.
50. Chi poi abbia introdotto le maschere, i prologhi, la moltitudine degli attori
ed altrettali cose, si ignora. — Della Poetica, cap. V.
51.
Se dì solenne a festeggiar talvolta,
D’erbe un teatro si compone e nota
Una commedia [52] recitar si ascolta,
In cui l’attor pallida al volto e immota
Maschera tien dalla beante bocca,
Il bimbo, di terror pinta la gota,
Nel sen materno si nasconde.
54.
55. Plinio, Nat. Hist. lib. 19. 5. 46, fa sapere che ne’ grandi spettacoli della
Grecia Nemea venisse data al vincitore una corona di appio, erba
palustre, detta anche, helioselinum.
61.
62.
65. «Non comprendo di che abbia egli a temere, da che sì bei settenari egli
reciti al suono della tibia.»
67.
69.
72.
73.
Sovente ancora
Il medesmo color diffuso intorno
È dal sommo de’ corpi; e l’aureo velo,
E le purpuree e le sanguigne spesso
Ciò fanno, allor che ne’ teatri augusti
Son tese, o sventolando in su l’antenne
Ondeggian fra le travi: ivi il consesso
Degli ascoltanti; ivi la scena e tutte
Le immagini de’ padri e delle madri
E degli dei di color vario ornate
Veggonsi fluttuare, e quanto più
Han d’ogni intorno le muraglie chiuse,
Sicchè da’ lati del teatro alcuna
Luce non passi, tanto più cosperse
Di grazia e di lepor ridon le cose
Di dentro, ecc.
Trad. Marchetti.
74. «Avanti tutti, Gneo Pompeo col far iscorrere le acque per le vie, temperò
l’ardore estivo.» Lib. II. c. 496.
75. «Oggi per avventura credi più sapiente quegli che trovò come con latenti
condotti si porti a immensa altezza e si sprizzi acqua profumata di
zafferano.»
76.
77.
78.
80. «A Marco Olconio Rufo, figlio di Marco, duumviro incaricato per la quinta
volta dell’amministrazione della giustizia, quinqueviro per la seconda
volta, tribuno dei soldati eletto dal popolo, flamine d’Augusto, patrono
della colonia, per decreto de’ decurioni.»
81. «Marco Olconio Rufo e Marco Olconio Celere a propria spesa eressero
una cripta, un tribunale, un teatro a lustro della Colonia.»
87.
88.
89.
90.
94.
LA NUTRICE.
MEDEA.
Resta Medea.
TESEO.
FEDRA.
96.
100.
103.
104.
110. Cap. V.
111. «Egualmente sono a lui dovuti e il tempio della gente Flavia e uno stadio
e un odeum ed una naumachia, delle cui pietre di poi valsero alla
riparazione del gran circo, i due lati del quale erano stati incendiati.»
112. I giuochi di Achille in onor di Patroclo sono narrati nel libro XXIII
dell’Iliade.
113.
119. «Cajo Quinzio Valgo figlio e Marco Porcio figlio di Marco Duumviri
Quinquennali, hanno per onore della Colonia costruito col proprio
denaro l’anfiteatro, concedendone ai Coloni il posto in perpetuità.»
121. Cajo Cuspio Pansa figlio di Cajo, padre, Duumviro per la giustizia,
quattroviro quinquennale, prefetto, per decreto de’ Decurioni, al
mantenimento della legge Petronia.
122. Gli scavi ripresi nel 1813 e durati fino al 1816 lo misero interamente alla
luce, come trovasi di presente.
123. «Il Patrono del sobborgo Augusto Felice sopra i ludi per decreto de’
decurioni — T. Atullio Celere figlio di Cajo Duumviro sopra i ludi, le porte
e la costruzione de’ cunei, per decreto de’ Decurioni. — Lucio Saginio,
Duumviro, incaricato dalla giustizia fece, per Decreto de’ Decurioni, gli
aditi. — Nonio Istacidio figlio di Nonio, cilice, Duumviro sopra i ludi fe’ gli
aditi. — Aulo Audio Rufo figlio di Aulo Duumviro sopra i ludi, e fe’ gli
aditi. — Marco Cantrio Marcello figlio di Marco Duumviro sopra i ludi e
fece tre cunei, per decreto de’ Decurioni.»
124. Io ho creduto di tradurre sopra i ludi e non pour les jeux, come tradusse
Bréton, e la parola lumina, non come il Garrucci e il Mommsen e altri per
illuminazione, ma per aditi, cioè i vomitorj, porte e spiragli de’
sotterranei, perchè mi parve più naturale e probabile che coi cunei si
facessero i relativi aditi, androni ecc., e nel diritto romano si trovi sempre
usata la parola lumina per indicare le finestre. Così anche l’abate
Romanelli.
127.
131.
132.
133.
135.
Gli abbattimenti
Colla sinopia, e col carbon dipinti,
Quand’io talor di Rutuba, di Flavio,
O di Placideian, a gamba tesa
Stommi a guatar, qual se verace fosse,
Di que’ prodi il pugnare, il mover l’arme,
Lo schermirsi, il ferir....
Trad. Gargallo.
138.
139. «I Campani, per odio de’ Sanniti, armarono di quelle ricche spoglie i
gladiatori, che appellarono col nome di Sanniti.»
140.
142.
143.
144. Atto V.
145. Nat. hist. lib. XXXIV. «Fece un ferito morente, in cui si potesse
comprendere quanto in lui restasse ancora di anima.»
149. Bond, scoliaste d’Orazio, le vuol dette Ambubaje dall’essere per ebrietà
balbuzienti.
150.
151.
152. A Gargallo mi sono sostituito, non avendo egli serbato fedeltà al primo
verso d’Orazio, che tradusse:
153.
158. In Domitianum, c. V.
159.
164.
167. In Galbam, c. 6.
171. In Domit. c. 4.
172.
173.
182. La camicia di tela che usiamo noi, imitò l’uso ed il nome dal camiss
persiano, e pare introdotta verso la metà del xii secolo.
183.