Stormont Brake

Baroness Suttie Excerpts

Thursday 2nd March 2023 Lords Chamber

[Lord Caine (Con)]

I thank the noble Lord. I must call him my noble friend, because we go back so many years. He makes very important points. I thank him for his contributions on these subjects, not only today but over a number of months and years. Of course, he is right to highlight the importance of stability, to which I referred in an earlier answer. That is the surest foundation for the union and for strengthening Northern Ireland’s position within the United Kingdom.

On the broader point, he referred to derogations. So much of what we have had to do through grace periods and easements has now been made permanent because of the Windsor Framework. That allows us to move on. In a similar vein to my noble friend Lord Cormack, I hope that one of the consequences of this is that we can now move forward, not just in Northern Ireland but in our broader relationships with friends, partners and colleagues in the European Union.

[Baroness Suttie (LD)]

My Lords, I, too, welcome the agreement and hope that it will lead very soon to a return to a functioning Assembly and Executive—for if there is no Stormont, there is no Stormont brake. Given the very real concerns of the Alliance Party and the SDLP, can the Minister say whether the Government intend to introduce a review mechanism to assess how the Stormont brake is working in practice once it is up and running?

[Lord Caine (Con)]

Of course, and I recognise that different parties will have different views and concerns. One purpose of the engagement that my right honourable friend will undertake in the coming days will be to establish what they are and where we can find agreement. As I said in my Answer to the noble Baroness, Lady Ritchie, the framework—the clue is in the name—sets out the framework for the Stormont brake, but there are some details to be filled in as to how things are codified. There will need to be legislation in this area setting out things in more detail, and I am sure that will be part of it.

Northern Ireland (Executive Formation and Organ and Tissue Donation) Bill

Baroness Suttie Excerpts

2nd reading
Monday 27th February 2023 Lords Chamber

[Baroness Suttie (LD)]

My Lords, I also thank the Minister for his clear presentation of the Bill. I utterly condemn the shooting and attempted murder of Detective Chief Inspector John Caldwell in Omagh, a community that has already suffered so much pain and loss. As the joint statement from the political leaders said so powerfully, there should be

“absolutely no tolerance for such attacks by the enemies of our peace.”

From these Benches, we commend the continued dedication of the PSNI and wish John Caldwell a full and speedy recovery. Our thoughts are with his family at this very difficult time. That appalling act last week also served to remind us just how fragile the peace process is and that it should never be taken for granted. As the noble Baroness, Lady Ritchie, said, it was none the less encouraging to see how quickly the political leaders in Northern Ireland came together and united in condemning this truly awful and barbaric act.

As my noble friend Lord Alderdice said so movingly in this speech, we congratulate Dáithí and his family on their remarkable campaign that has led us to this point. I also thank the British Heart Foundation for its support. Although it is very much to be welcomed that the Bill has facilitated, finally, the introduction of Dáithí’s law, we should not forget that this should have been happening in the Northern Ireland Assembly, which brings me back to the primary purpose of the Bill: trying to deal with the consequences of the ongoing absence of a Northern Ireland Executive and Assembly.

From these Benches, we support the Government on the Bill. We think that it is the right thing to do, but we deeply regret that it is once again necessary. It is right to give time and space for a resolution to be reached without the inevitable heat of an election campaign, but we hope, as others have said, that the Executive and the Assembly are back up and functioning long before the deadline contained in the Bill. We have had so many debates on the situation in Northern Ireland recently, but almost no matter what subject we are debating, we always end up looking back at the protocol. Today there is obviously a very different background to our debate, and, clearly, we all have to examine the proposals announced today in detail.

Since the referendum in 2016, at times we have seen ideology dominate our politics across the United Kingdom at the expense of finding pragmatic solutions to the situation in which we find ourselves. The unionist population was treated very badly, perhaps most of all by the former Prime Minister, Boris Johnson, who ignored political realities and complexities in Northern Ireland for his own political ideological purposes. In that regard, I very much agree with the comments made by the noble Lord, Lord Lexden.

I worked for nearly 10 years in the European Parliament—mostly for an Irish politician, as it happens—and I know that, if you have a positive working relationship based on trust with key players in the EU, you can always find pragmatic solutions to problems and issues. For my speech this afternoon, I had prepared a set of remarks on the two parallel democratic deficits currently faced by Northern Ireland because of the protocol and the absence of a functioning Assembly and Executive, but, given the circumstances and the announcement of the deal today, I shall limit myself to a direct appeal to all parties in Northern Ireland. There was a problem with the protocol—everyone accepts that—and the Government and Brussels have listened. The deal may not be perfect, and we all need to look at it in detail, but for the sake of the people of Northern Ireland, get the Assembly and the Executive back up and running and, if necessary, change and improve this deal from within.

Postponement of Local Elections (Northern Ireland) Order 2023

Baroness Suttie Excerpts

Wednesday 22nd February 2023 Grand Committee

[Lord Murphy of Torfaen (Lab)]

My Lords, the Opposition support the Government in this statutory instrument. When the Minister was explaining the rationale behind it, he also explained how complicated electoral arrangements in Northern Ireland are under the STV system. I had forgotten how long and complicated the process is and, therefore, it is absolutely sensible that this happens and that the elections are postponed to a later date.

I know, from reading the notes on the instrument, that the Government consulted the political parties in Northern Ireland and that no one raised objections to the elections being postponed. In a way, that is quite a good thing, because it means that parties that are not necessarily interested in the Coronation have not opposed the postponement of the elections.

I hope, as the Minister said, that the Coronation will be celebrated in a robust and worthy way in Northern Ireland, as it will be in the rest of the United Kingdom. I too will celebrate it, but it reminds me that when the present King was Prince of Wales, and when I was Secretary of State, he took a huge and very active interest in Northern Ireland matters—not simply going to garden parties and events like that but meeting the main players in civic society in Northern Ireland, in a positive way. I hope that the Coronation, in its new form, and the reign of the King, short as it will be by then, will be fully celebrated in Northern Ireland on that weekend, and that we ensure that there is also an opportunity then to take a break from the politics of Northern Ireland.

This leads me to my last point. I sincerely hope that, by the time the Coronation is held, we have an Assembly and Executive up and running in Northern Ireland.

[Baroness Suttie (LD)]

My Lords, the Liberal Democrat Benches also support this order and regard it as a necessary and common-sense approach to solving this issue. We also welcome this opportunity to debate it briefly—and I think that we will all be brief. As the Minister said, under the single transferable vote system—the proportional representation system used in Northern Ireland for local elections—it just would not have been possible to finish the count before the Coronation celebrations and events began. This would have had an impact on the staff and the valuable job that they do in working so hard to handle the count, because counting an STV election is very complex. It could also have an impact on the candidates and the voters.

I have a very brief point on that. It is very important for voters across the United Kingdom, including in Northern Ireland, to have confidence in the democratic system and to know that, once they have voted, their votes will be counted and that, at the next stage, the elected representatives will get on with serving the community in which they have been elected. In that regard, I also hope that, by the time we celebrate the Coronation, there will be a fully functional and active Northern Ireland Assembly and Executive.

Delaying these local elections in Northern Ireland clearly makes sense so that the count will not be interrupted. I, for one, hope that everybody enjoys the celebrations around the Coronation as much as I hope to do; I am grateful that they will be taking place in May, which is usually a wonderful month across the whole United Kingdom. I hope that we will have good weather in Northern Ireland so that people can celebrate.

[Lord Browne of Belmont (DUP)]

My Lords, I am pleased to rise in support of this order. I have to admit I am old enough to remember the Coronation of Queen Elizabeth II in June 1953—

Omagh Bombing

Baroness Suttie Excerpts

Thursday 9th February 2023 Lords Chamber

[Baroness Smith of Basildon (Lab)]

My Lords, throughout history there are incidents of such appalling horror that where we were when we heard the news remains embedded in our memories. Many in your Lordships’ House will have sharp and very painful memories of the Omagh bombing atrocity. On 15 August 1998, just months after the people of Northern Ireland supported the Good Friday/Belfast agreement with hope and optimism for a brighter, peaceful and more democratic future, as the Minister indicated in his answers to the Private Notice Question, the close-knit community in Omagh was thrust into the spotlight in the most shocking way possible: 29 people and two unborn children were killed, 220 were injured and the shockwaves were felt throughout Northern Ireland and far beyond.

While for many of us it remains a terrible memory, for far too many others it has blighted their lives as they have struggled with the consequences: some because they lost loved ones or were physically injured, and others because they suffered from the trauma as members of the community. That includes those who worked for the emergency and health services at the time, for whom it took a huge emotional toll. I remember visiting a centre in Omagh which gave support, counselling and therapies, both to those who lived in Omagh and to those who were part of the emergency services, to help them cope. So while for some it is a memory, others are still living with it, and the consequences remain part of their lives every day. As they have said, they want answers and are seeking the truth of what happened to try to reclaim their lives, even though it will never be the same. I pay tribute to those, including Michael Gallagher, who have campaigned for so long.

The Secretary of State’s announcement of an independent statutory inquiry is welcome. In his Statement, he explained why he has agreed to take that step and how the inquiry will work. The Northern Ireland High Court judgment in October 2021 found that plausible arguments could be made that the state had failed to comply with its obligations under Article 2 of the European Convention on Human Rights

“to take reasonable steps to prevent the … bombing”.

We also welcome that the Secretary of State has put victims first in considering this issue. The judge did not define what kind of investigation it would be, but the Omagh families and community are at the very core of this decision—and that is right. We must acknowledge that, for those directly affected, this will not be a pain-free process—getting to the truth never is—and additional support for them may be required.

Whatever the outcomes, nothing can absolve the perpetrators of this atrocity, who retain the ultimate responsibility. The Real IRA knew that their bomb would kill and maim, while others across the whole of Northern Ireland had rejected violence and were working for a better, peaceful future. The bomb was a huge betrayal of Northern Ireland’s desire for peace and reconciliation.

Knowing the Minister’s understanding of these issues, I know that he will not be surprised at the issue I want to raise with him today. As I have said, we generally welcome the approach that the Government are taking, but it is impossible not to note that it is so different from that of the Northern Ireland legacy Bill. With this announcement, the Secretary of State has engaged and responded in a way that has been regularly and widely welcomed. Yet the Bill that the Minister is steering through this House does not have the support of any of the Northern Ireland political parties, does not have the support of those who continue to live with the consequences of the euphemistically named Troubles and does not have the support of this House.

I know that the Minister is able to tell us how hard he has personally engaged across Northern Ireland with those who represent victims and with the political parties. He has done that. But engaging is a two-way process and I am not aware, even with all the work that he has undertaken, that he has managed to deliver any significant support for the Bill going forward. So there is an inconsistency in the Government’s approach to these two issues.

While we welcome the Statement, we look forward to hearing more information going forward, such as who will be the chair and some of the terms of reference. Will the noble Lord and his ministerial colleagues reflect on what has happened and the welcome for this Statement, to see if we can halt that Bill and work in collaboration for a better outcome?

[Baroness Suttie (LD)]

My Lords, I too am grateful for the opportunity to discuss the Northern Ireland Secretary’s Statement from last week and I very much echo and agree with the points made by the noble Baroness, Lady Smith of Basildon.

The decision to hold the inquiry is welcome. It is the right decision, and the Secretary of State for Northern Ireland should be commended for it. He listened, and he changed his mind. He has given the families and community in Omagh the hope that they will now learn the truth. As Michael Gallagher, whose son Aiden was murdered on that day, said:

“This is not a case of deflecting the blame from those who are responsible—that was the criminal terrorists who planned, prepared and delivered this bomb into Omagh. What we’re looking at is the failings of the people that are there to protect us.”


The murder of 29 people, including two unborn children—twins—happening as it did just months after the signing of the Good Friday/Belfast agreement in 1998 was a truly appalling and barbaric act of an unprecedented scale throughout the Troubles. The devastation to the community and the impact that it has had on the victims and their families, as well as the 220 people who were injured, is almost unimaginable. It is a credit to the peace process that the terrorists did not succeed and it was not derailed.

The Secretary of State said in his Statement,

“the inquiry will allow us to meet our article 2 procedural obligations under the European convention on human rights”.

That is also to be welcomed.

Will the Minister say what he expects to be the timetable now for the announcement of the chair of the inquiry and the publication of the terms of reference? How will he undertake to keep Parliament informed? Like the noble Baroness, Lady Smith, I am slightly surprised by the different type of approach to this inquiry from that of the legacy Bill. Will the Minister say a little more about how he imagines this very different process will fit in with the proposals in the current legacy Bill?

The families of the victims and the injured have already waited nearly 25 years. It will, at times, be a difficult and painful process, but as Michael Gallagher has said,

“If we don’t have this process, for the rest of our lives we’re going to be wondering ‘what if’.”

[Baroness O'Loan (CB)]

My Lords—

Protocol on Ireland/Northern Ireland: Supreme Court Judgment

Baroness Suttie Excerpts

Thursday 9th February 2023 Lords Chamber

[Baroness Suttie (LD)]

My Lords, further to that answer, does the Minister agree that this ruling increases the urgency to make real progress on the negotiations as soon as possible? The sooner there is a return to Stormont and the Executive, the better this will be for the people of Northern Ireland, given the cost of living crisis they currently face.

[Lord Caine (Con)]

The noble Baroness will be aware that I have been a consistent supporter of the Belfast agreement since it was reached on 10 April 1998. We are about to mark its 25th anniversary. I agree with her earlier comments. A protocol that was designed to prevent a hard border on the island of Ireland and to protect the 1998 agreement in all its parts is now having the unintended consequence of undermining and placing strain on that agreement. I agree with the noble Baroness entirely that we need to resolve these issues as quickly as possible and get Stormont back to work.

Northern Ireland Budget Bill

Baroness Suttie Excerpts

2nd reading & Committee negatived & 3rd reading
Tuesday 7th February 2023 Lords Chamber

[Baroness Suttie (LD)]

My Lords, this has been a wide-ranging if slightly depressing debate. Given the hour, I shall be very succinct in my response. This debate should of course not be taking place here in Westminster. Like many speakers, I very much regret that it is not taking place in the Northern Ireland Assembly. In that regard, I fully agree with what the noble Lord, Lord Hain, actually said—as opposed to what was thought in advance that he might say—even if I do not agree with all of his amendment.

It is now a full year since last February, when the Executive collapsed, and this Bill, however regrettable, is necessary to secure continued delivery of public services in Northern Ireland. However, we are primarily discussing, post fact, things that have already been decided. If an Executive had been in place in Northern Ireland, they would have been planning the budget for the coming financial year to March 2024. As I understand it, Clauses 8 and 9 of the Bill authorise a limited amount of spending for that time period. As the noble Baroness, Lady Ritchie, asked, I would be grateful if the Minister could confirm when he concludes how this will work in practice.

As other noble Lords have said, tough decisions will have to be made, particularly on health and education. It is very difficult, and indeed not appropriate, for civil servants to make many of these decisions. We have heard powerful speeches from many noble Lords about the state of healthcare provision and education in Northern Ireland. Healthcare in particular is something about which we should all be concerned. If an Executive had been in place, they would not have found an instant solution but they could have provided the framework for key and difficult decisions in the months ahead in Northern Ireland.

I feel that one of the most tragic things about the lack of an Executive is the inability to plan and move society forwards in Northern Ireland. The debate this evening has perhaps shown quite how much the debate is about looking back, not forwards. My honourable friend Stephen Farry MP made a very powerful speech on this during the debate on the Bill in the House of Commons last month.

The cost of trying to manage a divided society, and from duplication of facilities, is estimated at between £400 million and £800 million per year. This is money that could so usefully be spent on health, education and other public services. But, as other noble Lords have said, measures to reduce wasting limited resources in Northern Ireland would require brave political leadership and strategic planning. This cannot be carried out in the absence of a functioning and stable Executive.

I will say a little to the Minister about fast-tracking and transparency. I am sure that everybody who has taken part in this debate will agree that the scrutiny process on the Bill is very far from ideal. Obviously the vast majority of us hope for a workable deal on the protocol and a return to a functioning Executive in Northern Ireland. But, in the continued absence of both, can the Minister say whether thought is being given to allowing greater transparency and political input to the budgetary process, perhaps through allowing the Select Committees on Northern Ireland in both Houses to play a greater and timely role?

Finally, we have heard four speeches this evening from the noble Lords of the DUP. The noble Lord, Lord Bew, made a very interesting speech about some of the implications of the continued absence of an Executive. I say respectfully to the noble Lords sitting opposite that it is now nearly nine months since the elections to the Assembly last year, and it is very hard to see how this continued stalemate is serving anyone, least of all the ordinary people of Northern Ireland and the Northern Ireland business community, who continue to face such uncertainty. Most of all, in my view, it does not serve the political interests of Northern Ireland to be missing a strong voice from the Northern Ireland Executive at this critical time.

Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Suttie Excerpts

Committee stage
Tuesday 31st January 2023 Lords Chamber

Moved by

[Baroness Suttie]

94: Clause 15, page 13, line 33, at end insert—
“(c) allow those persons to submit, for inclusion in the final report, a victim impact statement which sets out the physical, emotional, social or financial impact upon them of the matters contained in the report.(4A) The ICRIR must produce guidance on the support available to assist in drafting the statement in subsection (4)(c) and suggested matters for inclusion.”Member’s explanatory statement
This amendment is intended to give victims and survivors a voice within the ICRIR process by providing the opportunity to set out the impact upon them of the matters contained in the ICRIR report.

[Baroness Suttie (LD)]

My Lords, I will speak to Amendments 94 and 95, tabled in my name and signed by the noble Lord, Lord Murphy, and the noble Baroness, Lady Ritchie. The Minister will recognise that these amendments are from the victims’ commissioner and that they seek to focus the Bill more on the needs of victims. The amendments aim to give victims and survivors a greater voice within the new commission process by allowing those victims who want to do so to submit an impact assessment to be included in the final report. These statements would allow victims to set out in detail the physical, emotional, social or financial impact that the matters contained in the report have had on their lives.

The second section of each of these amendments would require the ICRIR to provide guidance on the support that should be made available to the victims to produce these statements. These seem to me to be fairly straightforward and reasonable amendments, and a relatively small set to add to the Bill. These changes would provide at least some additional support for victims in the process. I hope the Minister might feel able to concede this. I would be very happy to discuss them in more detail between now and Report. I beg to move.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, I am very pleased to have been a signatory to these amendments and to assist the noble Baroness, Lady Suttie, in dealing with the needs of victims. The need for these amendments became very apparent last night, when we were talking to the victims associated with SEFF. As we have already explained, many of them experienced undue suffering and terrible hardship as a result of the summary execution of their loved ones, whether they were members of the security forces or ordinary members of the community.

The victims’ commissioner and his commission are absolutely correct in their assertion, based on feedback from members of the Victims and Survivors Forum and victims themselves: it is important that they can tell their story and the impact of that immediate and summary loss on them, their families and their wider community. That is vitally important and should be permitted. I make a plea to the Minister to give due consideration to these amendments. Maybe the Government would consider coming back on Report and inserting them in the Bill.

--- Later in debate ---

The current drafting of the Bill does not prevent a victim or survivor submitting an impact statement, nor does it prevent the commission publishing one. However, I recognise the purpose of this amendment and as with Amendment 166, I am very sympathetic to it and happy to talk to the noble Baroness, and to continue talking to the victims’ commissioner to see if there is a way to take these matters forward at a later stage. On that note, I ask the noble Baroness to withdraw her amendment for now, and I am confident we will return to these issues in due course.

[Baroness Suttie (LD)]

My Lords, this has been a very positive and indeed united short debate, and I thank all noble Lords who participated. I also thank the noble Baroness, Lady Ritchie, and the noble Lord, Lord Murphy, for signing my amendment. Like others, I was very struck by the fact that there are only two references in the Bill to victims. The Minister might want to take that away and think about it.

I was also very struck by the phrase used by the noble and right reverend Lord, Lord Eames. He said that these amendments would be a small but significant step forward in giving a greater voice to victims. It is very welcome that the Minister is making positive noises, and I look forward to speaking to him before Report and perhaps continuing a conversation with Ian Jeffers, the victims’ commissioner, about how they could reflect victims’ views as transferred to him. On that basis, I beg leave to withdraw my amendment.

Amendment 94 withdrawn.

Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Suttie Excerpts

Committee stage
Tuesday 31st January 2023 Lords Chamber

[Lord Dodds of Duncairn (DUP)]

My Lords, I want to comment briefly on the amendments in this group. Before I do so, once again, I put on record our thanks to the Minister and his officials for their continued engagement with us on the matters under consideration in the Bill.

I also want to put on record—the noble Baroness, Lady Ritchie of Downpatrick, referred to this—the meeting that we held yesterday with the victims’ group SEFF. Many of its members travelled from Northern Ireland to speak with your Lordships and highlight their concerns about the Bill. It is right that we pay tribute to those victims and the efforts that they are making to try to get across their profound concerns about it. Again and again, they emphasised something that I want to emphasise. While we discuss these amendments and debate independence, appointments and all that, no matter what improvements we make to the Bill, it is—in their view, certainly in my view, and in our view—irredeemable in its terms and fundamental aspects as a piece of legislation. Whatever we do in relation to justice, victims and getting at the truth, it cannot be right to have at the heart of government policy and a piece of government legislation the idea of immunity from prosecution for those who have committed crimes in the United Kingdom.

I want to touch on Amendment 14 in the name of the Minister. It concerns appointing a commissioner who has international experience. Can the Minister develop his thinking in relation to the motivation behind this amendment? I know that this was raised in the other place but it has not really been explained why it is thought necessary that someone should have international experience. It should be relevant to the work of the commission, okay, but what does that mean? Does it mean that they have done some academic studies or spent a bit of time abroad? Does it mean that they have been part of an international organisation? If so, what is the effect of the singling out of a particular position for such a person in relation to other appointments in the commission where other people may be better qualified but lack that particular qualification? I just think it is superfluous, as has been mentioned. There was nothing in the draft legislation to prevent the appointment of such a person, if it was thought necessary, but to put it in the Bill seems puzzling and I would like the Minister to develop his thinking on that.

On Amendment 12 and the other amendments in the name of the noble Lord, Lord Browne, I am not entirely convinced by the arguments that have been put forward. We have to remember that the commission and the commissioners, as has been said, will have the power of a constable. They will play more than just a judicial or quasi-judicial role; they will also have investigatory powers, they will be carrying out reviews and so on, so it is much wider than just a judicial-type role. Fundamentally, it gives more accountability if a Secretary of State, accountable to Parliament, is responsible for this, rather than a judicial appointments commission, whose appointments we really cannot question. Given the role of the judicial appointments commission in Northern Ireland and the fact that, throughout all the period of the Troubles, it has been above party politics and has never been dragged into any real controversy, here we are putting it into a position where it will be responsible for making what will be controversial appointments that could be the object of some criticism, in terms of balance and so on. I am not sure that that is a healthy or sensible position in which to place it.

Fundamentally, we come back to the point that was emphasised and re-emphasised to me at our meeting last night with the victims: whether the commissioners are appointed by the Secretary of State or a judicial appointments committee or whoever, fundamentally, they do not have the confidence and will not have the confidence of the victims. Therefore, all this is very interesting and important—absolutely—but it does not actually deal with the real fundamental flaw at the heart of this legislation.

[Baroness Suttie (LD)]

My Lords, I start by agreeing with the noble Lord, Lord Dodds, in thanking the Minister for his general approach to the Bill. I think we all feel that, unlike so many Bills at the moment, this is a Bill where we have the opportunity to get the Minister to genuinely listen and change it. That is very much to be welcomed in this Chamber. I also agree with the comments of the noble Lord, Lord Dodds, that many of us think the Bill is fundamentally irredeemable, to use his word. It is irredeemable in the eyes of the victims and, therefore, however many amendments and proposals we put forward this afternoon and this evening, it is, for many, an utterly irredeemable Bill and we have to view it through that prism.

However, going back to the amendments in this group, I feel that the noble Lord, Lord Browne of Ladyton, set out very clearly in his probing amendments the concerns about the significant amount of power that is being granted to the Secretary of State for Northern Ireland in the Bill. I very much share his views and concerns about that. I will not repeat the many points he made, other than to say that these are views shared by the House of Lords Constitution and Delegated Powers Committees, which both felt that this was giving far too much power to the Secretary of State for Northern Ireland. As the noble Lord, Lord Browne, and the noble Baronesses, Lady O’Loan and Lady Ritchie, have also said, if we are going to proceed with the ICRIR, the new commission, it is vital not only that it is seen to be independent but that this independence is maintained and seen so that the trust of all the people concerned with it can be maintained. It is also incredibly important that the process for how people are appointed to the ICRIR is seen as genuinely independent and, as others have said, above party politics. I think this is an area we really need to return to and look at in more detail before Report.

I appreciate that Amendments 14 and 15, tabled by the Minister, are intended to ensure that there is greater flexibility in the ability to appoint the best people to these roles, but, even given these amendments, there remains very real concern about the amount of power being given to the Secretary of State. Like the noble Lord, Lord Dodds, I wonder whether the Minister could expand a little on Amendment 14 and the requirement to appoint one or more people with relevant experience outside the UK. I think this is generally to be welcomed as a means of ensuring that the best commissioners with the broadest relevant experience are appointed.

Given the complexities and the history involved, it is not always going to be the case that someone from outside Northern Ireland will automatically understand the Northern Ireland context. But, in the history of the peace process, external people have often played an extremely valuable role, and for that reason I cannot support the position taken by the noble Baroness, Lady Hoey, in Amendment 14A. It would, however, be useful to hear from the Minister what sort of people he has in mind—although obviously he cannot name them, because that would be inappropriate in terms of due process. I would also be interested to know if the phrase

“as far as it is practicable”

in his amendment is intended as a sort of get-out clause if no sufficiently qualified people put their name forward.

Finally—I gave earlier notice of this question—is this going to be a proactive process of recruitment, where the Secretary of State for Northern Ireland and others go out and try to find international experts, or will it be more of a sort of passive process? I would be interested to hear how the Minister views this being introduced in reality.

[Lord Eames (CB)]

My Lords, the amendment of the noble Lord, Lord Browne, gives us the opportunity to do two things at this stage of our work: first, to pay tribute to the Minister for the way in which he has listened, constantly, to the many voices clamouring at our doors over this Bill; and, secondly, to be reminded that there are two key words to this legislation. One is “legacy”—and my goodness, we have said enough in this Chamber already to have analysed legacy—and the other is “reconciliation”, and, not for the first time, I am left wondering how His Majesty’s Government intended us to interpret that word.

The noble Lord, Lord Browne, is talking about one of the most sensitive parts of this proposed Bill: the appointment of this commission. I cannot, with my experience of Northern Ireland, imagine any issue that is going to be more productive of comment for and against this legislation than the question of the appointment of this commission. The noble Lord, Lord Dodds, has already reminded us of that significant period of this process. I welcome the opportunity given to the Minister to tell us a little more about what the thinking is about the structure of this commission. It is that point where many of us would have concerns about the involvement of the Secretary of State in this process.

Time and again in my correspondence, the messages I receive constantly underline the fact that victims and survivors are not at the centre of this legislation. This opportunity is given to us again to place on the record the needs of that part of our community. It is not just about those in the security forces or victims of either side in the conflict; it is about the mental instability that has been caused to another generation inheriting the deep thought and the deep suffering of the victims of the Troubles in Northern Ireland.

--- Later in debate ---

That is why I can say that every person who legitimately opposes terrorism can rightly say that they demand justice—and this Bill will not give them that justice. But let us not cover over the hypocrisy of those who caused over 30 years of murder and mayhem, and who do not, in reality, want justice to touch their loved ones. They want them to be spared while the security force members are pulled through the courts. That is hypocrisy.

[Baroness Suttie (LD)]

My Lords, as was said by the noble Baroness, Lady Ritchie, this is an extremely important debate. It may have been long, but it is extremely important. We have heard many detailed and deeply compelling speeches. I will just pay tribute to the noble and right reverend Lord, Lord Eames, because his intervention reminded us what this is all about. It is about people who have suffered, and it is important to focus on that.

As many noble Lords have said several times during debates on the Bill, we would have preferred it not to proceed at all, not least because of its Clause 18. I think I am not alone on these Benches in rather liking the radical noble Lord, Lord Cormack. He sometimes surprises us with his radicalism, but he was absolutely right to talk about this as trying to make a silk purse out of a sow’s ear. There are other, less polite, Scottish versions, but I will not use them today.

I will try to be brief, because time is ticking on and dinner break business is waiting. I am pleased to have added my name to Amendments 112, 124 and 135, tabled by the noble Lord, Lord Hain, who made a very compelling argument for them in his intervention. Clause 18 is absolutely the key clause of concern. It is at the very heart of people’s concerns about the Bill as currently drafted, and the proposals for immunity have caused a great deal of distress and anxiety to so many victims by potentially closing the door to hope. The maintenance of that hope that justice could be done has been so vital for so many victims and their families. If Clause 18 is left unamended, it is not clear to me how the Bill will be Article 2 compliant. I know that this view is shared by many others speaking in the debate, not least the noble Baroness, Lady O’Loan, and I feel that the Minister should respond to that in his concluding remarks.

At an earlier meeting on the Bill, I asked the Minister how the “general immunity from prosecution” set out in Clause 18 would sit alongside some of the government amendments proposed, which, in some way, restrict the definition of immunity. I am not a lawyer, but it is not clear to me how the general immunity framed in the existing Clause 18 would sit with some of the exemptions that the Government are proposing. I would be very grateful if the Minister could shed some light on this during his concluding remarks. We all appreciate that the Minister is trying to square multiple circles with this Bill, and that he himself has expressed deep concerns about the prospect of general immunity as it stands.

In conclusion, it would be useful to hear from the Minister whether there is still scope for movement on this between Committee and Report stages. He will have heard the united view of all noble Lords and Baronesses who have spoken this evening. Every single Peer who has spoken in this debate is against Clause 18. The victims are against Clause 18. I know that it was a Conservative Party manifesto commitment, but it is wrong and remains wrong. We would like to hear the Minister’s views on whether we can make progress, perhaps through the proposals of the noble Lord, Lord Hain, and the Operation Kenova process, but, personally, I think that it should be deleted from the Bill.

[Lord Murphy of Torfaen (Lab)]

My Lords, this has been a very impressive, rather stunning debate. I have tabled Clause 18 stand part, which would effectively omit immunity from the Bill. The noble and right reverend Lord, Lord Eames, quite rightly mentioned that this debate, and this and subsequent clauses, are at the heart of the legislation. Without them, there would be no Bill and no argument. If anybody reads in Hansard, or watches on television, the last two hours of debate in your Lordships’ House—and I hope they do—they will see how strong the feeling is across these Benches. This is not just because people do not like it but because noble Lords have spoken from deep experience over decades in Northern Ireland, from living there, being Ministers there, or whatever it might be, unanimous in the belief that this immunity, this amnesty—they are the same thing—should be dropped.

The other unanimous view in the debate was that the legislation completely ignores the victims: it is not about them, whereas it should be. Looking back over the last 25 years—particularly, I suppose, at the agreement—as I was saying to someone today, there were a number of things that we could have done and did not. We did many things when we introduced the agreement, but we could have improved on how we dealt with victims. In the years that followed, there were brave attempts: the Eames-Bradley review and others all tried to put right that which was not right a quarter of a century ago. What is certain is that this legislation does not. To the contrary, it makes things worse. Over 25 years, I have never experienced such unanimity on a difficult issue like this in Northern Ireland—I have experienced much disunity—so it cannot be right that we go ahead.

The noble Lord, Lord Cormack, made the interesting point about whether we should go ahead with the Bill, as it is so bad. Then the noble Lord, Lord Hain, the noble Baroness, Lady O’Loan, and others put their amendments forward, all first class with excellent speeches. They give an opportunity to improve it. Revocation of immunity, conditional immunity and licensing around immunity would all certainly improve it. The whole issue of trying to improve it was discussed last week in our first day of debates on Kenova. That is a dilemma for us in this House. We could have done nothing, let the Bill go through on the nod, and said that it was so bad that we would have to wait for a change of Government to repeal it, which the leader of my party has said that he will do. But there is a duty on us to try to ensure that it is not as bad as it is at the moment when it leaves this Chamber and goes back to the other place.

This part of the Bill in particular goes fundamentally against the rule of law. If I thought for one second that we could salvage some of this, that would be all well and good. But my feeling is that the Government simply want to go ahead, come what may. The amendments that they have put forward are all right, but they do not go far enough. My plea, and, I am sure, that of everybody in this Chamber, is to drop it.

Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Suttie Excerpts

Committee stage
Tuesday 24th January 2023 Lords Chamber

[Lord Weir of Ballyholme (DUP)]

My Lords, I also support the amendment in the name of the noble Baroness, Lady O’Loan. I am the first to acknowledge that many sensible amendments have been put forward from all sides of the House; there are also some that I would not be quite so keen on, but no matter how good some of those amendments are, they do not and indeed cannot deal with the fundamental flaws in the Bill.

Similarly—and I speak after a former Secretary of State for Northern Ireland—I am acutely aware of how difficult it is to find a way forward on legacy that is acceptable to everyone. Again, I am the first to acknowledge that, but I am completely convinced that the Bill before us is not that way forward.

The noble Baroness’s amendment goes to the heart of the process because it deals with the issue of democratic legitimacy and gives this House and Parliament an opportunity, if taken, to pause for thought. There are four good reasons why we need to pause.

First, as others have indicated, the Bill does not have a level of consensus within Northern Ireland among the political parties—indeed, quite the opposite. As someone who in a previous life served for 24 years in the Northern Ireland Assembly, and indeed for six of those as the Chief Whip of the largest party in the Assembly, I can say better than most that it is difficult at times to get a consensus within the Assembly. It is difficult to get a consensus in Northern Ireland. Indeed, in recent days on other issues there has been a level of debate as to what counts as sufficient consensus in Northern Ireland: is it a simple majority, or a cross-community majority? But one thing indicated by the proposer of the amendment is beyond doubt, as shown by the vote in 2021: every single party in Northern Ireland is opposed to this Bill. That is a complete consensus.

We may question in particular the bona fides of one of those parties, Sinn Féin, whose military wing inflicted violence for many years and was the biggest single contributor to deaths in Northern Ireland. But even leaving aside the fact that republicans were responsible for around 60% of the killings in Northern Ireland, nevertheless there is a complete consensus within all the parties in Northern Ireland that this is not the way forward.

Secondly, there is also a consensus among victims that this is not the way forward. As previously indicated, in the same way that veterans are not necessarily a homogeneous group with the same views on every subject, that is undoubtedly true of victims of the Troubles in Northern Ireland. Indeed, not only do they often desire different outcomes and have different perspectives on the world, but even members of the same family of a victim of the Troubles sometimes have different views. So it is extremely rare that a consensus emerges, but it is difficult to find a single victim, let alone a single victim group, who is in favour of this as a way forward. If indeed victims are supposed to be at the centre of this, by proceeding pell-mell with this Bill we are not moving forward.

Thirdly, the Bill very clearly represents a denial of justice. When we look at the Troubles, two myths are sometimes perpetrated. They are quite lazy assumptions. The first is that everybody in Northern Ireland is a perpetrator. That is clearly not the case. The vast majority of people, from whatever side of the community, got on with their lives, tried to make progress in a democratic way and gave the lie to the idea that there was no alternative to violence.

The second myth is that everyone is Northern Ireland is also a victim. I was extremely fortunate: although I grew up throughout the entirety of the Troubles, I did not lose a family member or close friend to the Troubles. Indeed, I probably grew up in one of the safest parts of Northern Ireland. I was able to grow up in such safety because of the bravery of veterans throughout the United Kingdom, both soldiers and police officers, in keeping that peace in Northern Ireland. I cannot claim to be a victim, which makes me particularly reluctant as a Member of this House to impose a denial of justice on victims. I would be imposing that on other people.

There is no doubt that many victims out there do not seek a particular form of justice or a conviction. It is also the case—none of us should be naive, particularly in historical cases—that the opportunities for a trial and conviction to hold somebody directly accountable for the murder of your loved one are extremely remote. I believe the Bill is fundamentally flawed in that it provides the “solution” of simply snuffing out, and taking away from families that want justice, any opportunity to have their day in court. That is the third reason why this is fundamentally flawed.

There is a final reason why we need to look at this. Understandably, when we are dealing with legacy the focus is quite often on the past and the legacy of the past, but I do not believe the Bill provides reconciliation in the future. Indeed, I believe it provides a very dangerous pathway for the future.

Unfortunately, we have already seen a younger generation in Northern Ireland—sometimes fuelled particularly by comments from those who have been supportive of terrorism—effectively trying to rewrite history. It is not unique to Northern Ireland, but the glib mantra of some people is that there is no alternative to violence, and there is an attempt retrospectively to justify that level of violence. Let me make it absolutely clear: from whatever source, whether republican or loyalist, violence in Northern Ireland was never justified and never will be. But if we rewrite history by effectively whitewashing what happened and providing an amnesty, we are in danger of sending out a signal to the future that violence is an acceptable way forward. That is a very dangerous pathway and not one that any of us would intend to go down, but I think we are inadvertently going down it.

For all those reasons, this is an opportunity to think again and pause for thought. I therefore welcome the noble Baroness’s amendment. I believe it is a productive and balanced way forward, and I therefore urge the House to support it.

[Baroness Suttie (LD)]

My Lords, I too thank the noble Baroness, Lady O’Loan, for the amendment and for what, if I may say so, was an incredibly powerful speech today. We have heard so many powerful speeches today from all sides of the House. I noted here that we have had speeches from Northern Ireland and not Northern Ireland. We have had the noble and right reverend Lord, Lord Eames, the noble Lord, Lord Hain—a former Northern Ireland Secretary—and the noble Lord, Lord Cormack, who made an incredibly powerful speech. Then there were the noble Lords, Lord Weir and Lord Alton, who also made speeches that made a very powerful case. We even heard from the noble Lord, Lord Dannatt, and the noble Viscount, Lord Hailsham, making a slightly different case but supporting, none the less, the aims of the amendment before us this afternoon.

As I said at Second Reading, the strength of opposition risks undermining the Bill’s stated intentions of dealing with the past and promoting reconciliation—“reconciliation” is in the very title of the Bill. But the Bill is not promoting reconciliation and is opposed by so many who have spoken today. It is for this reason that on these Benches we support the amendment from the noble Baroness, Lady O’Loan. A Bill of such sensitivity and consequence cannot and should not proceed without the consent of the Northern Ireland Assembly. To quote the noble Lord, Lord Dodds, who I thought also made a very powerful speech this afternoon, we need to listen to the victims and pause this Bill before Third Reading.

[Baroness Smith of Basildon (Lab)]

My Lords, it is rare that I speak in this House and say how disappointed I am to be here. But I think there was some optimism that, when we had the Second Reading, the Government would go away and, in thinking again, perhaps have that pause for discussions that we had hoped. I pay tribute to the Minister, because he did. This has taken longer to come back to us; the Bill has had quite a long gestation period to get to this point. But it is worth noting that the reason the noble Baroness has brought her amendment before us today is that, for all the engagement the Minister has undertaken and all the discussions that have been had, there has been no movement in the opposition to this Bill. It is not a lack of engagement that is causing the problem. It is not a lack of talking to people. It is perhaps a lack of listening and changing.

The noble Baroness’s amendment before us today is a very unusual one, so I hope the noble Lord recognises that it indicates the strength of feeling across this House and outside in Northern Ireland. I think it is a rare and dubious honour to have united every Northern Ireland voice in your Lordships’ House.

The noble Baroness, Lady O’Loan, and the noble and right reverend Lord, Lord Eames, have tried to deal with some of these issues themselves in the past, and no one is pretending that it is easy or that there is an easy solution. But what is essential is that victims, survivors and indeed veterans and others—anyone who has been associated with this time—have confidence in the process. This is what we are lacking today. I suppose the point—it is not necessarily a disagreement —is that we all know the views of the Northern Ireland Assembly. If the Northern Ireland Assembly were up and running and debated this tomorrow, it would not make any difference. It would still oppose the Bill, such is the strength of feeling. I was there for just a few days, the week before last, and in every single meeting we had with every single political party, and at every meeting afterwards, this was raised as an issue and there was no support.

It is appropriate that in Committee we should be clear about our approach to the Bill. The Minister has been generous with his time and we have had numerous discussions, but our position remains the same: we do not support the Bill. Indeed, at Third Reading in the other place we voted against it. That remains our position. The leader of our party has said he will repeal the Bill, such is his opposition to it. He does not say that to wipe the issue to one side; he says it in order to find a better and different way of trying to deal with some of these issues, recognising that most people want to find a process that works and that this difficult, complex and painful for so many.

--- Later in debate ---

Moved by

[Baroness Suttie]

1: Clause 1, page 2, leave out lines 30 to 38
Member’s explanatory statement
This amendment is to probe whether the definition of “serious physical or mental harm” in the Bill is sufficiently broad to ensure all those who wish to avail themselves of the ICRIR’s services are able to.

[Baroness Suttie (LD)]

My Lords, Amendment 1 is in my name and those of the noble Lord, Lord Murphy of Torfaen, and the noble Baroness, Lady Ritchie of Downpatrick. For the record, I too thank the Minister for his willingness to engage in this process. I echo the sentiments of the noble Baroness, Lady Smith of Basildon, that he has been an exemplary Minister. I congratulate and thank him very much, and I appreciate that he gave up a large chunk of his summer holiday last year to engage in this process.

[Lord Caine (Con)]

That was in response to you.

[Baroness Suttie (LD)]

Indeed, it was in response to my request. So I think we in this Chamber all recognise that the Minister not only has engaged very actively but has a tremendous amount of personal experience on this. Because of this, he has a tremendous amount of doubt about some of the elements currently in the Bill.

It is very welcome that the Minister has made a commitment to use Committee to continue to listen and engage on these concerns, and to listen to the very strongly held views of the House, which reflect the wider concerns in Northern Ireland and beyond. It is in that spirit that I hope that he will listen to the debate today.

Amendment 1 seeks to probe whether the definition in the list of eight narrowly defined characteristics on page 2 of the Bill is sufficiently broad to ensure that all those who wish to use the ICRIR are in a position to be able to do so. The trouble always with producing such lists is that they often accidentally result in some people being excluded and could therefore risk seeing some victims being denied justice. While acknowledging that the list is actually broader than was contained in the Stormont House agreement, it should be noted that the Stormont House agreement allowed for alternative legal routes, such as civil cases and inquests. It is worth exploring in Committee whether a longer list, or a more flexible approach to a list, could be adopted. We would be very happy to discuss the possible wording with the Minister between now and Report.

The Minister will know that the Commission for Victims and Survivors has expressed particular concern about the need to demonstrate severe psychiatric damage. At the time when many of the atrocities took place, people did not always have access to mental health medical services, so the link between the incident and mental health may not be clear.

The Minister will be aware that the Joint Committee on Human Rights has also expressed concern about the current list of eight characteristics producing arbitrary outcomes. As paragraph 73 of its report on the Bill states:

“For example, consider that there are two similar cases concerning torture but resulting in differing harms. The first case results in severe brain injury—this type of harm falls under the definition of a ‘serious offence’. Where immunity is not granted, the case may be prosecuted. The second case of torture results in severe damage to one or more organs—this type of harm does not fall under the definition of a ‘serious’ offence—there is, therefore, no possibility of a prosecution. It is not clear why these cases ought to be treated differently.”


To give another specific example, I would query the use of the terms under subsection (6)(e) and (f), which list the characteristics of “total blindness” or “total deafness”. Surely, partial blindness or partial deafness would still have a potentially very traumatic impact on a person’s life. I urge the Minister to examine this section of the Bill again to see whether it could be redrafted in a more flexible manner so that people are not accidentally excluded from access to the ICRIR. I am sure—or at least I hope—that this was not the original intention behind the drafting of this clause. I beg to move.

--- Later in debate ---

In conclusion, and in asking noble Lords not to press their amendments in this group, I stress again that I am very happy to continue discussing all the issues in this group following Committee and in advance of Report.

[Baroness Suttie (LD)]

My Lords, I agree that this has been a very thoughtful and—as the noble Baroness, Lady Smith of Basildon, said—respectful debate. It is probably the kind of debate that shows the strength of this Chamber in Committee, looking at a Bill in some detail and putting forward suggestions and improvements to it, even though—as the noble Baroness, Lady Ritchie, and others have said—some of us still face a dilemma as to whether the Bill is actually improvable. For many of us, it is still a fundamentally flawed Bill.

Earlier I did not mention the other amendments in the group, but I particularly highlight Amendment 147 and the powerful speeches made by the noble Lords, Lord Hogan-Howe and Lord Hain. These are issues I hope we can return to before the passage of the Bill is complete, and I welcome the Minister’s reassurance on that.

There is also the important question of accidental consequences of the five-year limit. The noble Baroness, Lady O’Loan, made a powerful speech giving examples of where there is a cliff edge. Cases could accidentally be dropped, which would be unfortunate.

I thank the Minister very much for his response to Amendment 1 and welcome that we can perhaps discuss this in more detail. I think we all feel—the noble Lord, Lord Weir, expressed it very clearly in his support of this amendment—that we really do not want accidental consequences. I feel it would be very positive indeed if we examined this further between now and Report. On that basis, I beg leave to withdraw the amendment.

Amendment 1 withdrawn.

--- Later in debate ---

[Lord Hogan-Howe (CB)]

I entirely agree. If you are able to say to a relative, “We are aware of a call and we know the content but we cannot tell you what was said”, you can start to fill that gap, which exists for every family, around what happened, when and how, and what the end was like—these are terrible questions to face, but it helps. I agree entirely: it is part of that truth-sharing, but, to be fair to everyone involved, I have to say that there is an evidential barrier which is available to help a reviewer but not a criminal charge.

[Baroness Suttie (LD)]

My Lords, I will be extremely brief, given the hour and the desire to move on to the dinner break business. From these Benches, we very much support the amendments of the noble Baroness, Lady O’Loan, to impose a function of investigation on the ICRIR, as well as one of review. She made very compelling arguments and I will not repeat them, but I hope that the Minister will take on board the strength of feeling in the debate on these amendments this evening.

I will speak briefly to Amendment 72 in this group, to which I have added my name. I was struck by the personal and powerful speech of the noble Lord, Lord Blair, as well as the practical suggestions of the noble Lord, Lord Hogan-Howe, for some ways forward. Perhaps we could take this forward with the noble Lord, Lord Hain, before Report.

The noble Lord, Lord Hain, made the case powerfully that the process being used by Jon Boutcher in Operation Kenova has cross-party support and has acquired the confidence of all those who have been directly engaged in it. Perhaps most importantly, it demonstrably works. As the noble Lord, Lord Hain, said, we do not need to reinvent the wheel. I suspect that virtually everyone taking part in this debate has spoken to Jon Boutcher. If you meet him, it is hard not to be overwhelmingly impressed by his commitment, dedication and drive. He is really committed to this process, and we should seriously consider it between now and report.

I urge the Minister to look closely at Amendment 72. I look forward to his response at the end of this group, not least to some of the questions that have been asked on the Government’s response to the option of upscaling the processes used in Operation Kenova, which seems to me to be a preferable approach compared to the proposals in the Bill.

[Lord Murphy of Torfaen (Lab)]

My Lords, if I were still Secretary of State for Northern Ireland and someone had suggested to me that the Bill should be introduced and then, immediately after suggesting it, said that all the international bodies concerned with human rights, Members of Congress in the United States, every single political party in Northern Ireland, every Church in Northern Ireland, and more or less everyone in Northern Ireland was against it, you might understand what my response would have been. The Bill certainly would not have ended up in this Chamber.

What I do not underestimate is the problem that the Minister and Government face. Of course, we have to try to resolve these issues—we have been 25 years trying to resolve these issues, and we did not do it when we did the Belfast/Good Friday agreement, because there were all sorts of other things to do. We have tried and tried, not least with the Eames-Bradley report, which I am sure the noble and right reverend Lord remembers. However, there is a dilemma: should the Government abandon the Bill—should they dump it? I think they probably should—or should it be improved? That is the work of the House of Lords, which is trying to improve it, to see whether there is any consensus at all among political parties here and in Northern Ireland as to what should replace it.

Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Suttie Excerpts

2nd reading
Wednesday 23rd November 2022 Lords Chamber

[Baroness Suttie (LD)]

My Lords, I echo the sentiments of the Minister about the recent escalation of tensions and the attempted murder of two police officers in County Tyrone last Thursday. There is never any place for violence or terror in resolving the issues of the past. The current increase in tension, however, does demonstrate the fragility of the peace achieved since the signing of the Belfast/Good Friday agreement, nearly 25 years ago. It also serves to remind us that this is a process that requires constant care and attention: it is not something that can, or ever should, be taken for granted. The process of reconciliation and dealing with the legacy of the past is not something that can be achieved through legislation alone. It is vital to allow people to feel that the events of the past are recognised and acknowledged. We need to acknowledge that the time available for this to happen is becoming short.

As Ian Jeffers, the Commissioner for Victims and Survivors, put it so aptly in a letter to the Telegraph earlier this week:

“As a civilised, just society we owe it to victims, survivors and their families to support them and find a shared way that we can address the legacy of our past.”


That brings me to the Bill we are debating this afternoon. I welcome the Minister’s tone and approach in his Second Reading speech. It was a very personal speech—indeed, an emotional speech—and that is to be welcomed. The Minister knows that so many people feel uncomfortable about—indeed, strongly oppose—several of the key elements in the Bill. Some have suggested that its very title is wrong, as it achieves so little in terms of bringing about reconciliation.

In the conversations that I—and I am sure many other noble Lords—have had with victims and their families, it is the removal of the hope of seeing justice that the Bill represents that has been so devastating to so many of them. There are many points I could make about the Bill, but I shall limit myself to five key areas where I believe that substantial amendments should be made.

The first, of course, is compliance with Article 2 of the ECHR. As the Joint Committee on Human Rights states in its summary:

“Our concerns reflect a view that despite the good intent, the operation of the bill as drafted would come into conflict with the government’s legal obligations and as such, risk frustrating the intended objectives.


We have serious doubts that this Bill as drafted is compatible with Articles 2 and 3 of the European Convention on Human Rights”.


I very much share the assessment of the JCHR that the conditional immunity scheme is likely to breach the UK’s obligations under Articles 2 and 3. We urge the Government to remove Clause 18 from the Bill, or at least significantly amend it. I am sure we shall return to these issues in much greater depth in Committee but, like the noble Baroness, Lady Smith, I would be grateful if the Minister could, in his concluding remarks, say a little more about how the Government intend to amend the Bill in Committee to ensure that it is Article 2-compliant.

A second substantial area of concern is that of the clear lack of consent for this Bill, as currently drafted, by key stakeholders. The parties in Northern Ireland, the victims groups, some of the victims, human rights organisations as well as wider society in Northern Ireland have all expressed very grave concerns about the Bill. The Constitution Committee, of which I am a member, has stated that the has stated the “strength of opposition” risks undermining the Bill’s stated aims of dealing with the past and promoting reconciliation.

As the noble Baroness, Lady Smith, also said, there has also been a general lack of consultation with key stakeholders prior to the drafting of the Bill. Given the complexities of these issues, this is precisely the kind of legislation that would have benefited from some form of pre-legislative scrutiny, perhaps particularly at a time when, tragically, there remains no functioning Assembly or Executive in Northern Ireland.

I know that the Minister has had many recent meetings with victims and other groups. Again, I am grateful for his reporting on that. He is very aware of their concerns about the Bill, so would he agree that continuing with it unamended because of a Conservative Party manifesto commitment would be unhelpful at this time of heightened tensions in Northern Ireland?

A third area of concern, which has also been highlighted by the Constitution Committee, is the very substantial increase in regulating powers that the Bill grants to the Secretary of State, and the subsequent concerns that this will have regarding the genuine independence of the ICRIR.

A fourth area of concern is something that the Minister touched on, which is the use of language. Throughout the Bill, the terms “review” and “investigation” are used interchangeably. These two terms have a distinctly different impact on the legal process. It is welcome that he has indicated that he will consider bringing forward amendments in this regard but, again, I would like a little more information on that if possible in his concluding remarks.

Finally and most importantly, the fifth area of serious concern is that, although the Bill claims to be victim focused, it is clear that this is very far from the case. In particular, the closing down of civil cases and inquests, as proposed by the Bill, has caused huge concern and upset to the victims. The victims I have spoken to all say that what they want is the truth and justice, through information and acknowledgement. What they do not want is the removal of that hope.

I therefore ask the Minister, who, with all of his experience, understands the complexity of the situation so well—I believe that he is someone who listens and will stick to his word of speaking to us all and moving forward together on amendments—to take on board the strength of feeling that he will hear on behalf of the victims and their families in the debate. They have already waited so long already. Surely the 25th anniversary of the Good Friday/Belfast agreement is the time to give them back that hope.