A key element of the Belfast Agreement was the undertaking to identify and agree at least 12 subjects or areas where "co-operation and implementation for mutual benefit" would take place between North and South.
Existing bodies in each jurisdiction would be the mechanisms for co-operation in a minimum of six cases. In at least six other areas, co-operation would take place through "agreed implementation bodies". The latter would implement, "on an all-island and cross-Border basis", policies agreed in the North-South ministerial council.
The agreement listed 12 "sample" areas for North-South co-operation and implementation and, while the politicians wrangled over decommissioning, civil servants on both sides were carrying out background work on the practicalities in these and other areas. Although decommissioning remains unresolved, the politicians have at last begun discussions on North-South matters: their decisions are likely to be strongly influenced by the ideas put forward by the civil servants.
Although the Irish language was not listed as one of the 12 areas, a paper was prepared by civil servants in Northern Ireland on this topic also.
The paper sees Irish as one of the areas where an implementation body might be established, with three main functions: 1) administering public funding of Irish language voluntary groups and projects; 2) promotion of the language among the general public as a "cultural resource" and in particular providing information about it to non-users; 3) advising the public and private sectors on facilities for Irish-speakers - but taking the different contexts of each jurisdiction into account.
The establishment of a cross-Border body for Irish would have implications for Bord na Gaeilge, the statutory Dublin-based language promotion organisation, which would presumably have to be subsumed into the new agency.
In the area of the arts, the civil servants note the existing close co-operation between the two arts councils, adding that this could be enhanced without major administrative or legislative changes. However, the possibility of a single, newly-created body is also considered although this would require significant legislative change. It would also raise issues in relation to funding, arising from the fact that the per capita figure for arts funding in the Republic stands at around £7.50 whereas in Northern Ireland it is 9.00 £9 sterling at present.
In the area of rural development and regeneration, the Northern Ireland officials say that, because such activity tends to be specific to particular localities, it is difficult to see significant tangible benefits flowing from the establishment of a joint implementation body. The complexities of funding arrangements and administration could also involve significant extra cost. The civil servants say the "feasible option" is to enhance co-operation using existing structures.
On teacher qualifications, officials note that no formal arrangements currently exist between North and South. Teachers from the Republic wishing to work in the profession in Northern Ireland must apply to the North's Department of Education - and vice-versa. The Republic requires evidence of competence in Irish before recognition is granted.
The Northern officials say it is difficult to substantiate a case for the creation of a single new body concerned with teacher qualifications. Greater freedom of movement for teachers on a cross-Border basis would logically require less in the way of administration, not more.
The issue of setting up an all-Ireland tourist board is also considered. On the plus side, this would reduce duplication of effort, tourism in the North would probably expand and there could be savings on the staffing side. There would be bureaucratic difficulties, e.g., the Northern Ireland Tourist Board would have to "rearrange" its links with the British Tourist Authority. There would probably be difficulties over the location of the new body's headquarters - one site or two, Belfast as a regional office perhaps?
Although there would be substantial changeover costs in unifying the two boards, in the longer term such a body should require a lower administrative budget than two separate boards.
Animal and plant health was one of the 12 "subjects or areas" for cross-Border co-operation and implementation suggested in the agreement. Pointing out that well-established, if frequently informal, links already exist between the Departments of Agriculture, North and South, the officials say it would be relatively simple to formalise these arrangements. However, the creation of a new joint implementation body would have major technical and structural implications, according to the brief prepared by the NIO.
The officials also point out that when BSE struck the UK, Northern Ireland was caught by the EU rules which imposed the ban on beef exports. The existence of an all-Ireland animal health administrative body could have carried the risk that similar sanctions would have applied to the Republic.
