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Review of Marches and Parades: A Survey of Views Across Scotland
EXECUTIVE SUMMARY
BACKGROUND
In June 2004, the First Minister, Jack McConnell, appointed Sir John Orr to undertake an Independent Review of the procedures for authorising marches and parades in Scotland. The Review covers all types of processions, from political demonstrations to local community pageants. It is against this background that TNS Social were commissioned to undertake a survey to explore the views and experiences of a broadly representative sample of the Scottish population. The findings will complement other evidence currently being gathered, and will help inform the report which Sir John will submit to the First Minister in December 2004.
The aims of the survey were to explore:
- individual views on parades and marches
- individual experiences of parades and marches
- the impact of parades and marches on individuals and the wider community
- views on how the community should be consulted and engaged in matters relating to the planning of parades and marches
METHODOLOGY
Computer-assisted telephone interviews were undertaken with 676 respondents across Scotland during October 2004.
Random Digit Dialling was used to achieve a random sample of landline telephone numbers within each of the 8 police force areas in Scotland. To allow some analysis of results by police force area, approximately 150 interviews were undertaken in the Strathclyde Police area and 75 interviews in each of the other 7 areas. To take account of the geographically disproportionate sampling, the data was then weighted to provide a sample representative of the geographical distribution of the Scottish population.
Quotas were set within each police force area in order to achieve a sample broadly representative of the adult population in terms of age, sex and working status.
The main topics covered in the survey questionnaire were:
- experiences of different kinds of march or parade as a participant, spectator or as someone 'otherwise affected' (e.g. as a passer-by or as someone who lives or works nearby)
- positive and negative impacts of different kinds of march or parade (e.g. community spirit, enjoyment, being held up or delayed, feeling angry, upset or offended)
- whether decisions about marches and parades are perceived as an 'issue' in respondents' local communities
- views on what should be taken into account when making decisions about marches and parades
- the amount of notice which should be required from march organisers
- who should be involved in decisions about marches and parades
- views on whether organisers should contribute to costs
EXPERIENCES OF MARCHES AND PARADES
A sizeable proportion of the Scottish population has been involved in, or affected by, some form of march or parade. Figure E.1 below illustrates experiences of three different types of march.
Figure E.1 Experiences of different types of march and parade
Base: 676 (All respondents)
Much of the experience has been of local gala day parades/carnivals with floats/student rag week and similar parades - two-thirds have been spectators at these kinds of parade, over a quarter have been participants and almost half have been 'otherwise affected' (i.e. not participants or spectators but affected in some way by the march, for example, as passers-by or because they live or work nearby).
Although few have been participants in Orange Order/Irish Republican walks, a quarter have been spectators and approaching half have been 'otherwise affected'.
Around 1 in 7 people have been participants in a political protest or demonstration, a similar proportion have been spectators and a fifth say they have been 'otherwise affected' by this kind of march. Experiences of political protests tended to be more recent than experiences of other types of march.
IMPACT OF MARCHES AND PARADES
It is clear that many people felt they had gained positive experiences from marches and parades - enjoyment, feelings of community spirit, feeling involved in something important and feeling that they were making a difference.
Not surprisingly, participants and spectators are more likely to report positive experiences than those 'otherwise affected' because they are passers-by, or because they live or work nearby. Nonetheless, even some of this latter group report positive experiences - for example, 44% 'otherwise affected' by political protests say they experienced feelings of community spirit.
However, there are also a number of problems associated with marches. Some disruption is caused by local gala day parades: around 1 in 3 of those involved/affected say they have been held up or delayed, and around 1 in 6 say they have been prevented from going somewhere they wanted to go.
There is more disruption associated with political protests and Orange Order/Irish Republican walks. In each case, of those who were not participants or spectators but were 'otherwise affected', roughly half said they were prevented from going somewhere and roughly 6 in 10 said they were held up or delayed. In relation to Orange Order/Irish Republican walks, 4 in 10 of those 'otherwise affected' said they were annoyed or upset by the noise and around half reported feeling angry, offended or upset. Moreover, a quarter of those 'otherwise affected' said they had felt they were in physical danger.
Half of respondents agreed that 'Overall, marches and parades benefit my local community' but almost as many felt that 'Overall, marches and parades cause divisions in my local community'. Respondents in the Northern Constabulary area were more likely to feel that marches benefited their community, while those in Strathclyde were more likely to feel that they caused divisions. Further research might be helpful to explore views about the benefits and problems in different areas.
THE EXTENT TO WHICH DECISIONS ABOUT MARCHES ARE AN ISSUE
Overall, around two-thirds of respondents indicated that decisions about marches were 'not really an issue' or 'not an issue at all' in their area. The remaining third said that they were either a 'big issue' or 'something of an issue'. Of this third who thought they were a big issue/something of an issue, the majority (i.e. around 15% of all respondents) said this in relation to Orange Order walks.
The extent to which marches are seen as an issue because of disruption (e.g. because of disruption to traffic or business, or the mess created) is very similar to the extent they are seen as an issue because of their nature or purpose. This suggests that the two are closely linked and that marches that are an issue because of their nature are also an issue because of disruption. There are perhaps two main reasons for this. Firstly, if people are unhappy about a march because they object to its nature or purpose they also object to the disruption caused (and if they are happy about the nature of the march they are more willing to put up with the disruption caused). Secondly, it may be that if the nature or purpose of a march is controversial, it leads to more disruption because of road closures or measures taken to minimise the risk of trouble.
WHAT SHOULD BE TAKEN INTO ACCOUNT WHEN MAKING DECISIONS
Respondents thought that a wide range of issues should be taken into account when making decisions about whether marches should go ahead, or where and when they should take place. Overall, the most important considerations were the risk to public safety, the protection of freedom of speech, the risk of serious damage to property, and the cost of policing and clearing up afterwards.
Views differed slightly in relation to Orange Order/Irish Republican walks, where more importance was placed on the risk of offending or upsetting people and relatively less importance was placed on freedom of speech (although, in absolute terms, freedom of speech was still seen as important).
One of the key difficulties in making decisions about marches is striking a balance between considerations which are seen as important but are not always compatible. This issue was highlighted by responses to some statements on general principles. While two-thirds agree that 'Freedom of speech is more important than whether someone is angered or offended by a march', and three-quarters agree that 'As a general rule, all marches should be allowed unless there is a serious risk to public safety', three-quarters also agree that 'Marches which are likely to inflame racial or religious tensions should not go ahead'.
NOTIFICATION AND INVOLVEMENT IN DECISIONS
Most people agreed that requiring march organisers to provide 28 days notice to the authorities was 'about right', but that exceptions should be allowed in certain circumstances.
A majority thought that the council, the police and the other emergency services should be involved in decisions about marches. In general, the view was that local community groups, residents, businesses and places of worship should be notified about marches in their area but not actually involved in decisions.
Over a third of respondents said that they, personally, would like to be notified about marches in their area. Their preferred methods of notification were by letter or newspaper advert.
COSTS
Views on whether march organisers should contribute to the various costs associated with marches are shown in Figure E.2 below.
Figure E.2 Whether march organisers should contribute to costs (% respondents saying 'yes' they should contribute)
Base: 676 (All respondents)
Respondents were evenly split on whether organisers of local gala parades and protests about local issues should pay for policing costs and local authority costs. However, in relation to the costs of repairing damage and the costs of insurance, a clear majority thought organisers of these types of parade should contribute.
In relation to both political protests and to Orange Order/Irish Republican walks, three-quarters or more of respondents thought organisers should contribute to policing, local authority and insurance costs, and almost all thought they should contribute towards the costs of repairing damage (90% thought organisers of political protests should contribute and 93% thought organisers of Orange Order/Irish Republican walks should contribute).
Interestingly, however, when asked later in the survey how much they agreed with various statements, roughly half of those who thought that organisers of political protests should pay for policing costs agreed that 'Making marchers pay for policing costs limits freedom of speech'.
CONCLUSIONS
Parades and marches affect a sizeable proportion of the Scottish population. While there are a number of problems associated with marches, there is also evidence that many people gain positive experiences from them. Procedures for authorising parades and marches must therefore attempt to strike a balance - which may be very difficult at times - between minimising the negative impact of marches and maintaining people's freedom to protest, demonstrate and celebrate.
The survey indicates that there is a consensus on a number of principles - the need to protect freedom of speech, that marches should be allowed unless there is a risk to public safety, and that marches which are likely to inflame racial or religious tensions should not go ahead. Unfortunately, these principles are not always compatible. This again highlights the inherent difficulty in regulating marches and parades - how to balance one individual's right to protest, demonstrate or celebrate with the authorities' responsibilities to ensure public safety, and to allow other individuals to go about their daily business without undue inconvenience or risk of offence.
The survey does not provide the Review with any easy answers to this problem. What it does do, however, is confirm that the public wants a range of issues taken into consideration, and a range of organisations and local groups involved in the process.
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