The Scottish Government

Key Findings

1.1 As part of its action plan to tackle sectarianism in Scottish society, the Scottish Executive commissioned a consultation with office holders in the most important supporters associations, federations, or their equivalents, for 17 of the biggest clubs in Scotland. The sample of clubs chosen is an excellent one in terms of sporting importance and geographical spread. In addition, with home league crowds of 3,942,173, these 17 clubs represented over 90% of the total attendance at all Scottish Premier League and Scottish Football League clubs in season 2005-06.

1.2 The consultation was designed to discover:

• whether these supporters think there is a major problem of sectarianism in Scottish football
• what practical problems they believe any sectarianism causes for the average supporter
• what practical suggestions they could offer for measures to limit or eradicate any sectarian structures sectarian behaviours, and sectarian attitudes around football in Scotland

1.3 The information provided in the report is based on discussions with some of the most experienced, most traveled, and most dedicated football fans in Scotland. The Facilitator also met with various pressure groups and organisations formed around this issue, and with some senior officials of Celtic, Rangers and Airdrie United. The consultation was carried out between April and July 2006. It is a unique initiative in Scottish football, and has provided very valuable information.

General Views of Supporters on Sectarianism in Scottish Football

1.4 While the supporters of three or four clubs argued that the situation is better than it used to be, sectarianism is seen as a problem - usually a major problem - in Scottish football. A few other clubs were mentioned - mainly Hearts and Airdrie - but the supporters of fifteen of the seventeen clubs see the problem of sectarianism as located predominantly, usually exclusively, with the fans of the Old Firm. Supporters from non-Old Firm clubs deny that sectarianism plays any significant role in their relations with any other club. Either sectarianism is simply not an issue or, where it may once have been significant, it is in sharp decline. A generally expressed view was that, while the rest of Scotland has "moved on", the Glasgow region is still locked into an outmoded, strange, and unpleasant, 'tradition'.

1.5 The supporters of Celtic agree that sectarianism is a major problem but see it as much more widespread than most other supporters. They are keen to stress the historical context in which Celtic came to be formed as a club, and the history of discrimination against Irish Catholics in the past and, possibly, into the present. Celtic supporters believe they are the recipients of the sectarian sentiments and sectarian actions of fans from most of the other major clubs in Scotland.

1.6 The supporters of Rangers are the only group which feel that sectarianism is not a major problem in contemporary Scottish football. They argue that the situation:

• has been getting steadily better over the last few years
• is nowhere near as bad as it is painted

In any case, they argue that much of what gets labelled as 'sectarianism' is rather to do with football fans 'winding up' the opposition.

1.7 The fans of the other clubs doubt that the Old Firm clubs are really sincere about their current anti-sectarian policies and programmes. Usually, the Old Firm are seen as wedded to sectarianism because of the money they are believed to have made, and still do make, out of it.

1.8 Partly because many fans believe that there is an economic edge to continuing sectarianism, partly because there is doubt about the real intentions of the Old Firm, the vast majority of supporters adopt a general pessimism or cynicism that anything effective will be done to moderate or eliminate the display of sectarian sentiments in Scottish football. Their belief is that only an outside agency - like UEFA, occasionally Sky TV - would have the necessary drive and clout to press forward policies that would have a substantial effect on sectarianism in Scottish football.

1.9 Supporters tend to locate dealing effectively with sectarianism in Scottish football as having both a short term and a long term component. Short term, apart from Rangers fans, the feeling is widespread that a short, sharp, shock is required to move things along. Long term, the strong feeling is that this is a problem of Scottish society rather than Scottish football and, apart from Celtic fans, reference is then made to a necessity to modify Scotland's divided educational system, if there actually is an intent to do away with the potent sources of sectarian division.

Six Major Policy Issues and Problems

1.10 Analysing the results of this consultation with these experienced football supporters from all over Scotland, six major policy issues and problems emerged:

• what precisely is the 'sectarianism' we want to eliminate from Scottish football?
• can the Old Firm become more clearly united in the anti-sectarian initiative?
• does the content of the pre-match/half time 'entertainment' at Rangers and Celtic add to the problem?
• do the ways visiting supporters are positioned, policed, and stewarded in the Glasgow grounds add to the problem?
• can ticket allocation procedures for the away games of the Old Firm be altered, so as to enable a more effective sanctioning of their supporters who misbehave in ways linked to sectarianism?
• what are the responsibilities of the Scottish media in regard to the portrayal and amplification of the sectarian problem in Scottish football?

Recommendations for Action

1.11 The report sets out a series of recommendations for policy action, designed to begin to deal, in a limited but practical way, with these problems. In summary these are:

Defining 'Sectarianism' and the Limits of the Initiative

It is recommended that:

• The Scottish Executive provides and publicises a clear statement of its specific objectives for the anti-sectarian initiative in Scottish football and sets out a timescale for change against which progress can be measured
• The Scottish Football Association provides and publicises a clear statement about what UEFA's current disciplinary regulations in regard to discriminatory behaviour mean, in practical terms, for all of Scottish football
• The Scottish Executive and the Scottish Football Association distinguish between the two components of 'The Old Firm' and deal separately and distinctly with any issues of sectarianism in each case
• The Scottish Executive and the Scottish Football Association alert all other professional clubs to the dangers of second hand sectarianism; advise clubs that this routine vocabulary of abuse is not in the best interests of Scottish football; and requires them to take the actions necessary to regularly inform their fans of the possible consequences of the continued use of this kind of language and imagery

Making the Old Firm More Recognisably United in the Anti-Sectarian Initiative

It is recommended that:

• Celtic and Rangers merge their current anti-sectarian initiatives into one single and joint campaign, adopting a title and a style which clearly indicate their clear and collective determination to stamp out any associations they may be thought to have with pro-sectarian sentiments or actions
• The Scottish Executive and the Scottish Football Association fund a sustained publicity campaign against sectarianism, and Rangers and Celtic help engage present and past players, coaches and celebrity supporters in the campaign, to portray sectarianism as out of date, as unfashionable, and as dangerous to the future of Scottish football
• The Scottish Football Association, all the major clubs, and the Scottish Professional Footballers Association, ensure that all footballers playing for major clubs receive anti-sectarian training, and are regularly made aware of the dangers of making easy and unsubstantiated references to the supposed sectarian affiliations of other players, clubs, referees, journalists, etc
• Celtic and Rangers, with the assistance of the Scottish Executive and the Scottish Football Association, encourage their organised supporters groups to engage in a regular series of meetings to discuss common problems, including, but not confined to, any issues of sectarianism
• The Scottish Executive commissions a review of the effectiveness of policies used in recent campaigns, in the United Kingdom and elsewhere, to exclude various kinds of inappropriate behaviour from football stadiums, so as to learn from innovative ideas and follow best practice
• The Scottish Executive and sportscotland encourage the development of supporter-led initiatives to counter sectarian sentiments and actions, by providing a small fund which supporters groups could apply to, so as to cover the expenses of such initiatives

The Pre-match and Half Time Entertainment at Ibrox and Parkhead

It is recommended that:

Rangers and Celtic evaluate the form and content of their current pre-match, half-time, and post-match entertainment to assess whether their current patterns:

• could give the impression of being conducive to the expression of sectarian sentiments
• could be modified so as to more clearly emphasize that both are Scottish clubs with deep connections to a non-sectarian, contemporary, forward-looking, Scottish society and to Scottish football

The Positioning, Policing and Stewarding of Away Fans in Glasgow

It is recommended that:

• The Scottish Executive, the Strathclyde Police Force, Celtic, Rangers and the stewarding companies they employ, review existing policies for, and styles of, marshalling football fans in the major Glasgow grounds and establish whether these are appropriate for the likely threat posed by most fans from most clubs in Scotland
• The Scottish Executive, the Association of Chief Police Officers and the stewarding companies employed review the current policy and style of policing and marshalling football fans at all the major grounds in Scotland, to eradicate any inconsistencies; to recommend styles and procedures which should be followed across the country; and to spread best practice
• Rangers and Celtic review the current positioning of away fans in Ibrox and Parkhead to ensure they are provided with average levels of comfort and viewing, and that these positions are those best suited to limiting outbreaks of sectarian sentiments
• Celtic and Rangers review the existing policies for, and styles of, stewarding football fans at their grounds and establish whether these are appropriate, and whether they are communicated clearly to all fans
• Strathclyde Police and the stewarding companies employed at Parkhead and Ibrox adopt procedures so as to communicate clearly with away fans, particularly to ensure that the reasons for any special controls directed at them are perceived to be both sensible and appropriate for their safety
• Rangers, Celtic, their stewarding companies and the Association of Chief Police Officers review the current anti-sectarian training received by police and stewards regularly deployed at Ibrox and Parkhead, to establish if this training is that best suited to spreading a clear and consistent anti-sectarian message;
• The Scottish Executive commissions a review of the use, so far, of the new law of 'offences aggravated by religious prejudice' at football grounds. This review should include:

• The Scottish Football Association and the Association of Chief Police Officers enter into a sustained dialogue with organised supporters groups across Scotland, with the aim of discussing and explaining styles of policing and the routine application of laws designed to prevent sectarian sentiments and actions at football grounds;
• The Scottish Executive maintain a regular consultation with football supporters across Scotland to establish whether they note any changes or improvements in policing and stewarding policies through time, and whether they believe progress is being made through the initiative against sectarian displays in Scottish football

The Behaviour of the Away Fans of the Old Firm

It is recommended that:

• Celtic and Rangers review their current procedures for the allocation of tickets for their away matches with a view to making changes which will make it absolutely clear that individuals and/or supporters' groups will be liable to punishment by the club in the event of any misbehaviour linked to sectarianism
• Rangers and Celtic promote mechanisms and provide aid which will facilitate greater self-policing amongst their away support, for example by providing preferential ticket allocations to supporters' groups with the best records of behaviour
• The Scottish Executive, the Association of Chief Police Officers and stewarding companies employed review the current policy and style of policing and marshalling football fans at all the major grounds in Scotland, to eradicate any inconsistencies; to recommend styles and rules which should be followed across the country; and to spread best practice
• The Scottish Executive and sportscotland encourage the development of supporter-led initiatives to improve relations between away fans of the Old Firm and home fans around Scotland, by providing a small fund which supporters groups could apply to, to cover the expenses of such initiatives

Discussing the Responsibilities of the Scottish Media in Regard to the Portrayal and Amplification of Sectarianism in Scottish Football

It is recommended that:

The Scottish Executive and the Scottish Football Association hold meetings with editors and sports editors of the major media companies in Scotland to discuss:

• the importance of the media reporting accurately and clearly on any future displays of sectarianism within Scottish football
• the dangers of adding a 'sectarian gloss' to stories where such an emphasis is unjustified by the facts of the event
• the dangers inherent in routine expression of sectarianism in humour, attributions of allegiance, and the like

The Scottish Executive commissions a consultation with the editors and main contributors to the major football fanzines in Scotland, so as to establish their views on the routine expression of sectarian sentiments, epithets and humour in these significant sub-cultural outlets.