Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Ritchie of Downpatrick Excerpts

2nd reading
Wednesday 23rd November 2022 Lords Chamber

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, I was 11 in 1969, when the Troubles started. I lived in an area of Downpatrick in County Down which was largely unscathed by terrorist violence. However, that changed in 1994, just before the ceasefires, when six of my neighbours were brutally murdered by loyalist paramilitaries. None of those people was ever involved in any political act, apart from voting, and none ever espoused violence. Whenever I visited those families, one little boy said to his granda and his mum after the murder of his father and his uncle that night, “Am I now daddy?” I found those words terribly evocative, but to me they bring back what this is all about: the violence, the terrorism and the dirty war, which I totally reject, had an enormous impact on ordinary families throughout the island of Ireland and also here in Britain, and we must never forget. We must never go back to those days.

The Minister referred to the violence of the last six or seven days in Strabane and Derry. Those acts of violence are also wrong and those people should be getting off all our backs and leaving us to live in peace and harmony. For those reasons, we need the restoration of political institutions, but this legacy Bill is not fit for purpose and should be scrapped. There was an alternative, and I have heard the Minister and the noble Lord, Lord Dodds, refer to that. Yes, there was an alternative. I was part of that alternative in terms of democratic Irish nationalism and as a member of the SDLP, and very proud to be so, because we espoused non-violence and respect for political difference and we rejected all forms of violence. We wanted to see the three sets of relationships addressed in the Good Friday agreement.

The Bill is not supported by victims, international organisations representing victims’ groups, political parties in Northern Ireland or wider society and it is contrary to the provisions in the Stormont House agreement, in which the Minister was deeply involved.

Closing off criminal investigations and reviews such as Kenova, civil cases, inquests and police complaints relating to the Troubles will deny justice to victims and families. I have only just learned today that the police review of the Loughinisland case, to which I referred earlier, cannot continue because there is insufficient money in the legacy branch of the PSNI to do that work. The noble Lord, Lord Dodds, referred to the need to fund the PPS, and that is critical to allow the Kenova cases to come forward, because they deal with investigation and review. The replacement proposed in the Bill, the Independent Commission for Reconciliation and Information Recovery, is entirely inadequate and will be too closely controlled by Westminster. The provisions granting immunity from prosecution for Troubles-related incidents will see people who have committed the worst acts imaginable granted irrevocable immunity in return for partial and self-serving testimony that may already be entirely in the public domain.

The Bill stands to breach the UK’s obligations under Article 2, the right to life, and Article 3, freedom from torture, of the ECHR, and threatens the Good Friday agreement’s requirement for complete incorporation of the European Commission. Undoubtedly, addressing the legacy of Northern Ireland’s past demands great care and sensitivity, but it is not served by the Bill, which is unworkable, undemocratic and in breach of our international obligations. Victims and families right across the community, some of whom I know and some of whom we have all met—I am thinking of Mr Raymond McCord’s video, shown in 1 Parliament Street some weeks ago—deserve truth and justice, but the Bill will not provide for that. I believe there is a deliberate attempt to cut down truth and justice for other means and ideas.

I have talked to various people and we are faced with the worst of outcomes—an outcome that benefits and best serves state and paramilitary-vested interests, whatever the claims to the contrary. They have a shared interest and common agenda. This has been a fundamental fault line in legacy discussions over the years, as the Minister will be aware, having been involved in many of those discussions. State and paramilitary elites, both republican and loyalist, do not seriously wish to comprehensively address the past, or would do so on self-serving terms, and do not intend to offer forthright answers to searching questions. That is what motivates this obscene legislation and I believe it should be totally cancelled.

It is contrary to the European Convention on Human Rights. A recent joint report by Houses of this Parliament decried this legislation and recent developments at the Council of Europe support these concerns. The Council of Europe has the responsibility to support and safeguard implementation of the ECHR. In a decision of September 2022, the Council of Ministers expressed its ongoing risk concerns regarding the UK’s departure from the Stormont House agreement to the present Bill, and stated that any legislation must be in full compliance with investigative duties under the ECHR. I ask the Minister: how will that issue be addressed? The Council of Ministers also expressed serious concern about the lack of formal public consultation on the Bill, ECHR compatibility and the “minimal support” for, and public confidence in, the Bill in Northern Ireland. The Swiss Government state that the UK should ensure that the Northern Ireland Troubles Bill is in line with the Stormont House agreement and the necessary means are provided to carry out independent and impartial investigations.

Reference has already been made to the Committee on the Administration of Justice, which has been working in this area in Northern Ireland for many decades, and the Model Bill Team, which is based between the CAJ and Queen’s University Belfast. One of those working on it is a neighbour of mine and I know her very well; I think she is a person who will believe in truth and justice. Amnesty International and the international rights and solidarity committee, formerly known as British Irish Rights Watch, have indicated that the Bill is unacceptable.

In abandoning the Stormont House agreement, the Government are in breach of commitments in the UK-Ireland New Decade, New Approach agreement that restored power-sharing in 2020. As far as I know, the Irish Government were never consulted about the Command Paper and the Secretary of State’s Statement of 18 March 2020. What about the co-guarantors of the Good Friday agreement, the British and Irish Governments? Surely, in very sensitive matters such as legacy and victims, they should have been involved.

New Decade, New Approach committed to legislating for the Stormont House agreement within 100 days. It is now three years later. The Bill also conflicts with the Good Friday agreement over both the duties to ensure incorporation of the ECHR in Northern Ireland law, with direct access to the courts and remedies for breaches, and the framework for the devolution of justice. I cannot stress clearly enough that victims need access to truth and justice. The PPS in Northern Ireland needs to be adequately resourced. The legacy branch of the PSNI needs to be adequately resourced to carry out the outstanding inquiries required. We need issues to do with state collusion and the use of agents, which led to so many deaths of innocent people, to be fully investigated. I am aware of many reports from the Police Ombudsman’s office, not least that into Loughinisland, which show levels of state collusion. There is consensus within the human rights community that the legacy Bill is not fit and, in some instances, they say it is unamendable. It is definitely not compatible with international human rights standards.

I take no great delight in saying that I honestly feel that the Bill should be scrapped and scrapped now. We should revert to the Stormont House agreement and involve all parties in discussions to deal with these very vexatious issues to do with legacy and victims. In my mind, violence and terrorism were never, ever justified. The killing and maiming of people and the destruction of property, in the name of a cause, were never, ever justified. I say to the Government that what they are trying to do—to grant immunity from prosecution to certain groups, such as veterans who may or may not have committed illegalities and serious crimes—is wrong. In that vein, the Bill should be abandoned and scrapped.

Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Ritchie of Downpatrick Excerpts

Committee stage
Tuesday 24th January 2023 Lords Chamber

[Lord Dodds of Duncairn (DUP)]

My Lords, I too would like to thank the noble Baroness, Lady O’Loan, for tabling this amendment to the Motion to move into Committee. It provides us with the opportunity to once again ask the Government to consider very carefully how they wish to proceed, given the level of opposition that there is to this Bill, which has again been laid bare in the contributions that we have heard from those from Northern Ireland already this afternoon.

The Minister, about whose personal integrity I have no doubt whatever, is fronting for the Government on this issue, and he did give a commitment that the Government would take their time before proceeding, or would move very carefully and consider amendments —and some amendments have been forthcoming. But I would urge the Minister to think very carefully about what has been said already, and also what has been said over the previous months since the Bill was published.

We have been told repeatedly throughout the period of what is euphemistically called “the Troubles” that the victims should be at the centre of any process which is about legacy, truth recovery, justice and so on. It is very clear that victims have been treated abominably by this Bill and by this Government, and that is a terrible thing to have to say about a Government who are committed to the union—although their actions in recent times, both in the protocol and on this, would cause many unionists to doubt what exactly is now going on with the Conservative and Unionist Party. It is certainly not the case for all members of that party, and certainly not all parliamentarians, but at the centre there is something deeply and fundamentally wrong with how Northern Ireland is now being treated as part of this United Kingdom. This is one of the most egregious examples of where victims and their views are being set aside. There is universal opposition, yet this Government are intent on proceeding.

I appeal to the Government: listen to the victims. We heard the noble Baroness mention various organisations, institutions, foreign bodies, and all the rest of it, and I have respect for very many of them. However, I do make the point that some of these people now speaking out against this Bill supported, against the views of victims in Northern Ireland, the proposals to reduce the length of any sentence on conviction of the most heinous terrorist crimes, some of which we have heard about just now, to two years, and to allow those who have already served two years to walk free. Regardless of that, we should listen to the victims and, even now, pause, and urge the Government to withdraw and not move into Committee.

Victims have listened very carefully to the voices that have been raised in opposition to this Bill, and among the voices that have been raised are the voices of the victim-makers. We have the appalling situation where the representatives of terrorist organisations, who glorify and eulogise murder and the murderers—I am talking about Sinn Féin—have the audacity to come out and use this piece of legislation to bash the Government. Their support for victims is mock support: it is a pretence. Their agenda is completely different. They are pocketing the concession for their members, and those who carried out violence, then turning it to bash the Government.

So the Government cannot win on this. They are in the invidious position of doing something that has no support across the board. Therefore, I urge them to withdraw the Bill. They need to counter the twisted narrative of the Troubles that is out there, and to be more proactive in terms of the balance of the past. There is a widely shared view in Northern Ireland that there is an imbalanced process, where the story of the terrorists and their organisations is continually played out in the media. We have had some examples of that even this week—but where is the balance, with the countless thousands of families, their extended families and their communities and neighbours who were terrified daily by the threat of terrorists living among them, spying on them and betraying them at their work?

I do not advocate looking at Twitter too much, but I urge noble Lords to look at one that talks about “on this day” and an atrocity carried out by the IRA almost every day. It details the normal day-to-day activities of ordinary people going about their daily business—dropping their children at school, driving a bus, being in a bakery, carrying out a profession—who were murdered. They were cut down by terrorists who now claim that they have the right to talk about human rights and lecture everybody else about them. The Government are doing those people, their relatives and their kith and kin such a disservice. Therefore, I urge the Government and the Minister to think again at this stage.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, as a Member of this House coming from Northern Ireland, having represented a constituency in the other place, I—like others from Northern Ireland—have met many victims. The Troubles have imbued the lives of all of us from Northern Ireland because, in some way, we have been deeply affected, either by the deaths of loved ones or neighbours or by the destruction of property. All of that has left many victims searching for truth recovery and justice. The ordinary people I am talking about feel that the Bill robs them of their opportunity to access justice, investigations and inquests which they believe, quite rightly, is their right.

I agree that there should be a pause placed on the Bill and that the Government should go away and think again—and think in terms of the Stormont House agreement. We said this at Second Reading, but other things have happened since then. Other organisations in the human rights field have raised important considerations to be taken into account. The European Commissioner for Human Rights, the UN High Commissioner for Human Rights, the victims’ commissioner and the Northern Ireland Human Rights Commission, which has a statutory responsibility in all of these areas, have all highlighted the faults in the Bill and the fact that the very premise on which it is based—immunity from prosecution—goes against the very heart of what the UK democratic system should be about, and what we as Members of your Lordships’ House should be fighting for.

I can understand what the noble Baroness, Lady O’Loan, is talking about as a former Police Ombudsman for Northern Ireland, and what the noble and right reverend Lord, Lord Eames, said, as he was part of the Eames-Bradley commission which looked into this area in detail with a microscope. There is no doubt that the deaths, injuries and massacres have caused immense pain, whether to members of the security forces or to people on whatever avenue of any political perspective or whatever location they came from on the island of Ireland, as well as here in Britain. People suffered pain and anxiety and were deeply affected.

I believe that the fulfilment of rights and the rule of law must be central to the legacy process. That goes to the very heart of the Bill; immunity from prosecutions and the prevention of civil actions will not deal with what was already agreed in the Stormont House agreement and will not bring peace, justice and reconciliation. I firmly ask the Minister, who was involved with Stormont House and many other agreements to do with victims and legacy in Northern Ireland, to go back to the drawing board and the Stormont House agreement. The Bill, with the amendments, and particularly the government amendments that we will deal with later, is an exercise in denying justice. It will breach the European Convention on Human Rights and threaten the Good Friday agreement. It is bad for justice, for human rights and for the thousands of people who lost loved ones, who were injured during the Troubles, or whose property was destroyed, and who have very bad memories of what happened to them, their families, their communities and their colleagues.

[Lord Alton of Liverpool (CB)]

My Lords, at Second Reading I made clear my own distaste for the Bill and pleaded with the Government not to proceed to Committee or Report. Of course, it is open to the Government at any stage to pull the Bill and to suspend our proceedings. My noble friend’s amendment does not do that; it says that we will proceed with Committee in the normal way. However, it says that before giving the Bill a Third Reading—which is also open to us to decide as a House—we would have a chance to pause it in the way that the noble Baroness, Lady Ritchie, the noble Lord, Lord Dodds, my noble and right reverend friend Lord Eames, my noble friend Lord Brookeborough, and the noble Viscount, Lord Hailsham, have argued in our proceedings; it would be wise for this not to go on to the statute book. This would be a way to do that.

I was grateful to the Minister for the invitation he offered to Members of your Lordships’ House to attend one of his briefing sessions—I think everyone in this House admires the diligence which he applies to his duties. However, during that meeting I had to reiterate my view that it is unwise and unnecessary to proceed with a Bill that, as we have heard again today, has united all shades of opinion in Northern Ireland and beyond.

One of my own principal reasons for opposing further progress on the Bill at this time is that, as we have heard, it has not been laid before the Northern Ireland Assembly, which is non-functioning, and so has not been considered by it. That contributes to the emasculation of power-sharing and devolution, and places in jeopardy one of the most important building blocks of the Good Friday agreement: the very formula which allows people from divergent and different parts of the community to live alongside one other and learn to honour and value each other’s traditions and experiences. Again, I plead with all sides that the Assembly be restored as soon as is humanly possible. Anything which smacks of victors or vanquished will lead to alienation and hostility, and potentially worse, which is why no effort should ever be spared to revive and restore the Northern Ireland Assembly.

I know that some would welcome the death of power-sharing and devolution and are ready to impose Westminster-baked solutions on Northern Ireland. That flies in the face of subsidiarity, is disrespectful of diversity and risks the gains which have been made. We need changes of heart and mind, not ill-considered legislation. For those reasons alone I support the amendment to the Motion that my noble friend has laid before your Lordships’ House.

--- Later in debate ---

[The Parliamentary Under-Secretary of State, Northern Ireland Office (Lord Caine) (Con)]

Well, my Lords, I said at Second Reading that I was well aware that this legislation had been met with far from universal acclamation, and, if I may say so, the last hour and seven minutes has reminded me of that in spades.

A number of noble Lords were kind enough to reference my role in this legislation. I am particularly grateful to my noble friend Lord Cormack and a former Secretary of State, the noble Lord, Lord Hain. I think one suggested that had it been my Bill it might have been slightly different. That may or may not be the case, but I tried to assure the House at Second Reading that I was committed to working with noble Lords on all sides and to continue engaging with groups outside Northern Ireland to see what could be done to improve the legislation in line with the proper constitutional functions of your Lordships’ House that the noble Baroness, Lady Smith of Basildon, reminded us of. That is what I have sought to do.

The noble Baroness, Lady O’Loan, in moving her amendment—I hope it was inadvertent—cast some doubt on the level of engagement, and the noble and right reverend Lord, Lord Eames, referred to it. I can only say that, since the end of July, I have done over 30 meetings—frankly, I have lost count—on legacy with political parties in Northern Ireland, Members of your Lordships’ House, victims’ groups and others. Those meetings have always been frank and candid, and I have sought to listen and take on board as many points as I can. I will continue that engagement and, indeed, I will be doing more such meetings in Northern Ireland next week. That has been a genuine attempt to fulfil the promises I made at Second Reading. Again in response to the noble and right reverend Lord, whom I hold in the highest regard—he is a man of great principle and has made a huge contribution in Northern Ireland over many decades—I say that I believe that the amendments I have brought forward are a reflection of the promises I gave at Second Reading. I am very happy to sit down, at any time, with the noble and right reverend Lord to go through those amendments, but we will be debating them anyway, I hope, at a later stage.

I understand the motive behind the noble Baroness’s amendment. I have long had sympathy with the notion that the Northern Ireland Assembly should have greater involvement in these matters. It was always the position, for many years, that addressing the legacy of the past should be owned and tackled primarily by Northern Ireland’s elected representatives. Some of us remember—it was not that long ago—10 years ago, when the Northern Ireland Executive invited Richard Haass, along with Meghan O’Sullivan, in the aftermath of the flags protest and difficulties over disputed parades, to address the issue of flags, parading and the past. That initiative was driven by the Northern Ireland Executive, supported by the parties in the Assembly. Unfortunately, as with other attempts to deal with these very difficult issues, that process did not find a consensus, and 12 months later, we found ourselves at Stormont House trying to deal with the same issues.

The noble Baronesses, Lady Ritchie of Downpatrick and Lady O’Loan, referred to the Stormont House agreement. At the risk of repeating what I said at Second Reading, I was in the room, as it were, for all but a few hours—time off for good behaviour—for about 11 weeks of that entire process. The level of consensus reached there has always been exaggerated. I can well remember the spokesman for the noble Baroness’s former party, the SDLP, opposing just about every line on legacy—she is smiling because she knows to whom I refer—in that agreement as “a dilution” of Haass-O’Sullivan, which was itself a dilution of Eames-Bradley. So the SDLP was not exactly oversold on it. I do not see the noble Lord, Lord Empey, in his place, but the noble Lord, Lord Rogan, is there, and he will attest to the fact that the Ulster Unionist Party did not support the provisions in the Stormont House agreement. So, that is two out of five that opposed it, pretty well right from the outset. Over the years, the level of consensus fell away even further.

[Baroness Ritchie of Downpatrick (Lab)]

I point out to the Minister that, from my very deep recollection, the SDLP supported the Stormont House agreement.

[Lord Caine (Con)]

As one who was in the room on 23 December 2014 when the final document was handed out, I think the approach of the former Member for Belfast South, Alasdair McDonnell, who was the leader of the party at the time—he might want to correct me if my recollection is faulty—was to say that they would look at it and give it a fair wind, but he made no commitments beyond that. As I say, the party’s spokesman was in a rather different position, but that might not be the first or last time that has been the case.

I also recall vividly that, after the Stormont House agreement was reached in late 2014, in early 2015 the then First Minister and Deputy First Minister in the Northern Ireland Executive came to the then Secretary of State and asked her whether the UK Government would take the legislation through this Parliament in Westminster to implement it, citing the enormous difficulties that would be encountered by trying to get it through the Assembly. That in part is why we are here; it went from something that it was envisaged would be dealt with in the Assembly to something that it was then requested we do here. It has, if I can put it like this, been a Westminster responsibility ever since. That is in part why the Government are bringing the Bill forward and why I stand here today.

Given that context, as the noble Lord, Lord Hain, and others reminded us, we have been grappling with this—it was never dealt with in the 1998 agreement because it was too difficult then. Successive Governments have sought to deal with it; they have failed to achieve consensus and resolution has proved elusive, frankly, to Governments of both parties. But we are, in a sense, running out of time in that people are getting older—some are passing away—and the chance of getting information to victims and survivors becomes more difficult the longer time passes.

Perhaps I may briefly try to pick up one or two further comments from the debate. My noble friend Lord Hailsham referred to a statute of limitations, as did the noble Lord, Lord Dannatt. This provides me with an opportunity to remind the House that the Bill has changed considerably from the original Command Paper proposals. People have referred to the vote in the Northern Ireland Assembly in 2021—I think the noble Lord, Lord Weir of Ballyholme raised it—but that was on the proposals in the Command Paper rather than the Bill that we are dealing with. It has changed, and I am on record in this House as opposing a statute of limitations on this issue. My noble friend and I have discussed it before; he and I have different views, as I am opposed to it. If there were a statute of limitations in the Bill, I would not be here doing it. The Bill has changed so that the immunity provisions within it are conditional and must at least be earned. Where there is no co-operation with the new commission, the prosecution route remains open.

My friend, as I think I can call him, the noble Viscount, Lord Brookeborough, referred to veterans being opposed. The exchange that he had with the noble Lord, Lord Dannatt, probably drew out one of the points that I was going to make: that veterans are not a homogeneous group. I met the Northern Ireland Veterans Movement last week and it is very supportive of the Bill. Where I definitely agree with the noble Viscount and the noble Lord is that we should be proud of the record and service of members of the Royal Ulster Constabulary and our Armed Forces. As I have said in this House on many occasions, my view is that without their contribution, sacrifice and service there would have been no peace process in Northern Ireland. We owe them a huge debt of gratitude and we should never forget that.

--- Later in debate ---

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, as a signatory of Amendment 1 in the name of the noble Baroness, Lady Suttie, I am happy to support that amendment. In various discussions with the victims commissioner in Northern Ireland, he has raised this issue on behalf of victims and survivors. We have already referred to the fact that there is cross-party support, as well as support in the victims’ organisations and in the churches for the Bill to go back to the drawing board of the Stormont House agreement. The role of the House of Lords is clearly to review, scrutinise and try to improve legislation before returning it to the Commons. However, challenges remain, because this legislation is, I feel, irremediable, as it centres on immunity from prosecution and ending all judicial processes for victims, thus making the amendments to the Bill—from the Government—a tinkering process.

Amendment 1 is probing. It seeks to broaden the quite narrow definition within the Bill in relation to medical conditions. In fact, a more expansive approach would enable more people to avail of the ICRIR’s services, whereas a restrictive approach will limit the efficacy of the legislation. Within Stormont House, other legal routes—civil cases, inquests and criminal prosecutions—would have been retained. This amendment was favoured and promoted by the victims commission, particularly on its visit to both Houses last week.

--- Later in debate ---

[Lord Blair of Boughton (CB)]

My Lords, I need to apologise for not attending Second Reading, but I want to support the amendments of the noble Baroness, Lady O’Loan, and the noble Lord, Lord Hain. We need to understand what Kenova is, and it is worth going back to understanding that it is an investigation of 200 murders. It is probably the most complex investigation in British criminal history. It also involves allegations of kidnap and torture.

In October, Jon Boutcher wrote this, which I want to read into the record:

“The Kenova interim report will address what was, and was not, happening between organisations; the Provisional IRA and its Internal Security Unit, the police, armed forces, intelligence services and their agents and informants. In particular it will focus on”


the Provisional IRA,

“which committed these murders and whether steps were, or were not taken by the security forces before these abductions and murders occurred to protect people, or subsequently to bring those responsible to justice. It will also comment on the state’s approach to investigating such cases and the nigh on impossible operating environment that confronted the security forces”.

He went on to say this about the Bill:

“My commitment to publishing the results of all of the Kenova investigations remains as strong as ever and this takes us a step closer to achieving this. While there is much discussion about the future of legacy following the Government proposed Bill, the Bill should not impact the release of Kenova’s findings”.


I simply could not agree more.

In a month’s time, it will be 48 years since the murder of a young man with whom I trained at the Peel Centre in Hendon. Stephen Tibble was five months younger than me and a month ahead in training; He was shot dead in west London by the IRA. For the first 15 years of my career, the world of Irish republican terrorism spread not only from Ireland to the rest of the UK but in particular to London. Quite a lot of Metropolitan Police officers also lost their lives in this struggle.

I join with those who have said that the Good Friday agreement was one of the great moments of our lives, because it is not for me to put myself forward in that way. The idea that the Bill will allow a way to end investigations into these terrible atrocities seems completely appalling. Personally, I agree with the noble Lord, Lord Cormack, that if the Bill is not amended to be run on Kenova terms, we must in the end oppose and defeat it in this House.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, I support the amendments in the name of the noble Baroness, Lady O’Loan. I have already added my name as a signatory to those amendments and to those in the name of my noble friend Lord Hain in relation to Kenova. In relation to the amendments to do with investigations, I want to see these investigations as an avenue to justice, so that that justice is still open to victims and members of the public. Investigations must not be closed down and justice must be provided for. The question arises: why would the Government want to remove investigations and who does this benefit?

The review process, which I think is to be undertaken by the ICRIR, is unlikely to meet all the requirements of an independent and effective investigation with the participation of next of kin, in line with the ECHR. Many believe that the main damage the legacy Bill will do is in closing off all the routes to justice that currently exist in Northern Ireland and replacing them with a single new body that has insufficient powers and is constituted in a manner likely to breach the European Convention on Human Rights—hence the amendments in the name of the noble Baroness, Lady O’Loan. They are absolutely vital because we want to see investigations and access to inquests. We want to see proper justice and truth recovery for all.

As I understand it, the ICRIR will lose those investigatory powers. I am sure that the noble Baroness, Lady O’Loan, will correct me if I am wrong in the next respect: that the police ombudsman will be prevented from investigating matters related to the Troubles, on top of the limitation on dealing with complaints already in the Bill. Legislation for dealing with police complaints in Scotland, England and Wales will also be blocked off from applying to Troubles-related conduct.

I had direct contact with the police ombudsman’s office in relation to the Loughinisland inquiry. The noble Baroness, Lady O’Loan, initiated that inquiry, which I think was way back in 2004—it seems such a long time ago. It was practically complete by the time she left and was then taken over by her successor, who did not see avenues of collusion. I remember saying at that time that he was being unfair to the victims and families, and that he should vacate the post. I think I said it in terms that were stronger and a little more derogatory than those, if I cast my mind back to 2011.

In the subsequent report by a previous police ombudsman, Michael Maguire, it was quite clear that he had worked further with families and with members of the RUC and the PSNI. He discovered large avenues of collusion in the midst of our community being perpetrated against ordinary people and denigrating very good police officers who were operating according to the rule of law. We must always remember that.

While the UK authorities continue to claim that the ICRIR reviews will be capable of Article 2 compliant investigations, using full police powers, human rights organisations such as the Committee on the Administration of Justice assert that this will not be the case, particularly for those who avail of the immunities scheme. Police powers will not be exercisable against persons who cannot be subject to criminal proceedings for an offence as they have immunity for it. However, I agree with the noble Lord, Lord Cormack, who says that, unless we—or rather the Government—go back to the drawing board, the Bill, as it is currently drafted, will fail before it even starts, because it does not command the respect of victims, political parties or the churches in Northern Ireland. Unless it has that cross-community support and support from victims, it is redundant.

I turn now to the amendment tabled by my noble friend Lord Hain about Kenova. We all know of the good work that has been done by Jon Boutcher, particularly in relation to Kenova, the investigations into the activities of the alleged agent known as Stakeknife, the Provisional IRA and the security forces. The interim Kenova report is drafted and about to enter a process of representation for those who will be adversely impacted by its findings. One thing that Mr Boutcher has done is liaise with the victims and their families at every possible avenue; they know exactly what is going on and what the next steps will be. He does that in a sympathetic and empathetic way, while also being very assertive in the job he has to do. Another amendment deals with the PPS in Northern Ireland being properly resourced to ensure that those files are not left lying on the shelf without any form of prosecution. So I am very happy to support all the amendments in this group, as I believe that the Kenova model, because it establishes the minimum standards for an ICRIR review, would be a very good model, if the Minister would consider accepting it.

While I am very happy to support the amendments in this group and to add my name to some of them, I feel that the current proposals in the Bill do not fulfil what is required for investigations. Yesterday morning, I listened to an actor playing the role of a victim who had been subjected to a paramilitary shooting. It did not say where he lived in Northern Ireland, but he was subjected to the most horrendous shooting incident that was witnessed by his own daughter through their front window after he returned from the pub. He was set upon by about three or four gentlemen and shot; to all intents and purposes, it was a punishment shooting. Therefore, in terms of that particular incident, I firmly believe that investigations must be central, because we have to find out who is responsible for those acts of terror.

Alan McBride was on the radio today speaking about Kenova. He is part of the WAVE Trauma Centre, and his wife sadly died in the Shankill Road bombing in October 1993. He is a firm believer in the Kenova model, because he believes that that would establish the minimum standards for ICRIR reviews and because it commands respect across the community and of so many victims’ groups—particularly WAVE, which has done such good work in this regard.

So I am very happy to support the amendments in the names of my noble friend Lord Hain and the noble Baroness, Lady O’Loan, because investigations must go along with reviews; without investigations, review is redundant and it makes the Bill redundant.

Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Ritchie of Downpatrick Excerpts

Committee stage
Tuesday 31st January 2023 Lords Chamber

[Baroness O'Loan (CB)]

My Lords, this group of amendments refers to the independence of the commission to be created. Throughout the Bill, there are restrictions on that independence in the form of not only the Secretary of State’s control over the number of commissioners, and in this instance the appointment of commissioners, and the budget, but many of the other requirements made of the commission and the various powers given to the Secretary of State.

I find some of these powers astonishing. They include the power to give guidance to the ICRIR about how to exercise its functions so as not to prejudice national security, put a life at risk or act in any way which might prejudice actual or prospective criminal proceedings. This exercises the minds of senior investigating officers, chief officers, prosecutors and judges on a very regular basis—decisions have to be and are made. Why do the Government think that the ICRIR will not be capable of making such decisions?

There is also a power to identify sensitive information to be given to the commission, the chief constable of the PSNI, chief officers of police forces in Northern Ireland, the Police Ombudsman, the director-general of the Independent Office for Police Conduct, Northern Ireland departments and Scottish Ministers. Managing and identifying sensitive information is done routinely by people such as chief constables. It is difficult to understand why the Secretary of State should be required to make regulations and give guidance in these situations. To those looking in from the outside, from whom I have heard quite extensively, it appears that this may enable the Secretary of State to control the work of the ICRIR.

The Secretary of State has a further extraordinary range of powers throughout the Bill, which we will come to later. Combined, they introduce a unique group of powers regarding the operations of the ICRIR. All the powers conferred on the Secretary of State to enable him to regulate, manage, control or otherwise dictate the proceedings of the ICRIR rest on the appointment of the commissioners. Amendments 12, 13 and 16, to which I have put my name, and Amendments 24 to 30, all in the name of the noble Lord, Lord Browne, seek to address a profoundly important control given to the Secretary of State in Schedule 1 by giving the appointment-making function for the commissioners to the Judicial Appointments Commission rather than to the Secretary of State.

The Judicial Appointments Commission comprises nine people, five of whom are judges and four of whom are not members of the legal profession at present. The requirement in the schedule on the Secretary of State to consult the relevant senior judge and such other persons as he or she considers appropriate will be indicative to many of those in Northern Ireland who want to see a truly independent commission of a total lack of independence. Noble Lords will know that perception is as important as reality in cases such as this. If the commission is to gain any credibility, it must above all be seen to be independent.

It seems to me that, were the House to agree the noble Lord’s amendments—which he has just said he will withdraw but which I may well retable on Report because they are so important—the Minister’s Amendments 14 and 15 would be unnecessary. In any event, they would not meet the requirement for an independent appointment. The appointment of a person who has gained experience outside the UK, as provided for in Amendment 14, may be an asset, but it could occur in any case, and it seems to me superfluous.

The one thing that emerges from a study of this Bill is that the ICRIR will not be enabled to be independent by its provisions. Rather, it is clear that so much power is reserved to the Secretary of State that it cannot be independent. There is no legislative consent Motion in support of this Bill and no support for it. We are talking about the past and future of the people of Northern Ireland. Independence is critical for this commission.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, I support the amendments in the name of my noble friend Lord Browne of Ladyton. Over the last number of days, increasingly people have said to us, right across the community in Northern Ireland, that they are opposed to this Bill on the basis that it does not have victims and survivors at its heart and centre. Last night, I was very pleased to sponsor a meeting for SEFF in your Lordships’ House, where that was the message, yet again, that was given to us. Right across the community, irrespective of political or religious persuasion or, shall we say, whatever job the person may have had, as a victim or survivor, people do not support the Bill because their needs and requirements are not placed at its centre.

The need for the independence of the commission goes to the very heart of the Bill. We have seen quite clearly that the Secretary of State will have undue and unfettered powers. My noble friend Lord Browne is absolutely correct: the membership and work of the commission need to be independently determined and it must not be shackled by the unfettered powers of the Secretary of State.

In fact, many human rights organisations have concerns about the influence of the Secretary of State over the processes of the ICRIR as proposed by the Bill. For example, the Secretary of State will have the power to appoint its chief commissioner, who must be a UK judge, moving significantly away from the process envisaged in the Stormont House agreement of appointing an international figure to be jointly agreed by both the UK and Irish Governments. Where is this process of engagement and consultation with the Irish Government and, of course, the agreement that is urgently required? Things in Northern Ireland do not go ahead successfully unless there is reconciliation, consensus, agreement and consent. There is definitely not consent for this Bill. There will be no legislative consent Motion because there is not an Assembly at the moment, but the five main parties are opposed to the Bill, so it would not happen anyway.

While the proposed government amendments to Schedule 1 seek to provide that the Secretary of State consults relevant figures, they are unspecified. In advance of appointments, the wide discretion given to the Secretary of State in Northern Ireland over appointments to the ICRIR remains. Furthermore, requiring the Secretary of State to ensure, as far as practicable, that there is a commissioner with international experience is a weak substitute for an independent, international individual or group of individuals. I sincerely endorse the views of my noble friend Lord Browne and ask the Minister to go back and look at this issue.

The submissions given to us are quite clear. Liberty says that

“While this may be a ‘Northern Ireland Bill’ in title and in focus, it is explicitly one that is directed by Westminster. This is not just true in the exclusion of stakeholders in Northern Ireland and Ireland alike in the introduction of the Bill, but in the deep vein of political interference that runs through the legislation”,


and that the ICRIR

“stands a chance of working only if it is seen to be independent in its operation.”

Yet the hand of the Secretary of State looms large throughout all aspects of its function.

A similar view is expressed by Amnesty, which quite clearly states that the ICRIR does not meet ECHR procedural requirements, and that the Secretary of State retains control over the appointments, the resources and caseload of the ICRIR as well as the powers to terminate its work at any point. In view of that, it is quite clear that the ICRIR will not be independent and I would like the Minister to outline to the House how he and the Government will address that issue, and how he will toughen up the legislation by amendments on Report to ensure independence. If the needs and requirements of victims and survivors are to be placed at the centre of the Bill, this is an urgent priority and I urge the Minister to do that and to use the Judicial Appointments Commission to fulfil the requirements of the ICRIR in achieving independence.

[Baroness Hoey (Non-Afl)]

My Lords, before I speak to my Amendment 14A, I just want to say that we may be wearing the same colours but I disagree with the noble Baroness, Lady Ritchie, on her support for the amendment from the noble Lord, Lord Browne. I really do not see the need for that and, in my view, “independent” can mean so much to so many different people. As far as I am concerned, the Secretary of State is the Secretary of State for the United Kingdom Government of Great Britain and Northern Ireland, and I see absolutely no reason why appointing commissioners would not be done by the Secretary of State. There have been some brilliant Secretaries of State and there have been some terrible ones, but the reality is that they are the representative of our Government of the United Kingdom and that should happen. Perhaps not being a lawyer, I do not share the confidence that so many people seem to have in the Judicial Appointments Commission.

In talking to my Amendment 14A, I had not realised that the Minister would not have spoken to his Amendment 14. Mine is really a probing amendment and in a spirit of genuinely asking a few questions. I would like to see all five of the commissioners not only have relevant experience before appointment. Also, very clearly, that experience must be gained in the United Kingdom and not exclusively in other places. My amendment would ensure that this would happen.

I am not convinced as to why the Minister has conceded the point about a commissioner needing relevant international experience if practical, and of having that prescribed on the face of the Bill. I have to say again that maybe there is a romanticised idea about international involvement in Northern Ireland. But, from experience of internationalising the Troubles—that horrible word that people use—reinvestigation has not always been good and has not always been considered successful. What type and level of experience is anticipated for these commissioners? Will they have to be former police officers or lawyers? As I said in the previous debate, I think it is sad that the Minister is unwilling to put into the Bill that ex-RUC and PSNI officers can definitely be considered. We saw what Jon Boutcher did by ruling out instantly ex-PSNI and ex-RUC. That is wrong and implies, as I said before, that there is somehow something wrong with them and that they are not to be trusted.

We need to know some of these things so that the appointment does not get decided with us and the victims not knowing exactly how that person will be put there. Without the benefit of my amendment, the Minister’s Amendment 14 leaves open the possibility of appointing an individual who not only has no experience of UK policing but has never even set foot in Northern Ireland or gained any relevant experience there. Of course we must remember that, once they are appointed, they take on the considerable powers of a constable. That is exceptionally important. Noble Lords should require assurance on this; their acceptance of my amendment would provide that.

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[Baroness Ritchie of Downpatrick (Lab)]

My Lords, this has been a powerful debate because, irrespective of their party-political affiliation, where they come from in Northern Ireland or whether they reside here in Britain, all noble Lords have a deep aversion to the proposition in this Bill to eradicate, in many ways, civil actions and to provide immunity. That is very much anathema to victims and survivors.

The Minister probably finds this Bill particularly challenging. In his previous positions over many years, he will have dealt directly with many victims and survivors in discussing the various iterations of how the Government, along with others, intend to deal with the legacy issues, because that is one of the outstanding matters of the Troubles era. However, having listened to the people from SEFF yesterday evening and to other victims over the past few weeks and months, many of whom I know personally, I know that they find that part of the Bill particularly difficult. They say that this Bill is irredeemable—a word that was used last week and has been used this week.

Looking at this group of amendments, I agree that Clause 18 should not stand part of the Bill. I also agree with Amendments 120 and 121, in the name of the noble Baroness, Lady Suttie, which probe the Government’s general definition of immunity from prosecution. Will the Minister say a few words about that? Clause 18 should definitely not stand part.

All these amendments deal with the immunity process, which, along with the denial of access to justice measures at the heart of the Bill, is very troubling for victims. What they want is the truth about what happened to their loved ones. The noble Lord, Lord Dodds, recounted the story of Pam Morrison. She told me last night about her three brothers and sister, who were heinously murdered in such a summary fashion. I know the Minister will be aware of the incidents in Loughinisland, where I have neighbours and indirect relations who were murdered, or executed, in a very summary fashion. These people were never involved in politics or anything like that. The way they were murdered impacts on the lives of their loved ones, because those people are no longer there; it is about the way that people decided to take them out of society.

I ask the Minister to talk to his colleagues in government, particularly the Secretary of State for Defence, who was in Belfast, as the noble Lord, Lord Hain, referred to, only a couple of weeks ago. He seemed to be very gung-ho about this legislation, with little cognisance of the needs of victims and survivors. The Bill provides for the granting of immunity from prosecution for gross violations of human rights on the basis of participation in the review process, through telling recollections. It does not specify whether those recollections have to be detailed or whether they can be scarce in their content. To many observers, including me, this legislation and this section on immunity are incompatible with the UK’s obligations under international human rights law, particularly the European Convention on Human Rights. This has already been referred to by the Northern Ireland Human Rights Commission, which has just written to our protocol committee about this issue.

There is no doubt that the threshold for this immunity set out in the Bill is low, with a requirement that information provided is true only to the best of the person’s knowledge or belief, and no requirement objectively to test that information against evidence. Can the Minister elaborate on this? To me, there is something inherently wrong in that. It shows a terrible fault line in this legislation and the need for the legislation not to be pursued.

Finally, the government amendments, including on penalties for lying, do not in any way attempt to make changes to this part of the Bill; I come back to the issue that there remain incredibly limited mechanisms for testing the veracity of accounts. The bottom line is that the government amendments would make no change to the immunity provisions. I ask the Minister to look at this matter, because the issue of immunity and the denial of access to civil action and inquests are causing grave concern to victims and survivors who thought they would be able to get truth recovery and justice—the very things they are looking for.

[Lord Weir of Ballyholme (DUP)]

My Lords, in dealing with this group of amendments, as we have to, it is undoubtedly the case, as has been said on all sides of this Committee, that we cannot get away from the elephant in the room: no matter how good an amendment is put forward—I include the amendments I have added my name to—it cannot turn what is an unacceptable Bill into an acceptable Bill. I urge the Minister and his government colleagues to listen to the clarion voices from all sides of the Committee, from all sections of society within Northern Ireland and from all groups connected with victims that this is not the right way forward. At the heart of it is the completely unacceptable anathema of the immunity that the Bill proposes. I agree with the remarks of the noble Baroness, Lady O’Loan, and her call for Clause 18 not to stand part of the Bill.

However ultimately unamendable the Bill is in terms of its scope, we have no choice at this stage but to look at these amendments. It is a duty on all of us to make whatever improvements we can, however small, and at least try to take any step forward that we can, so I will touch on them briefly.

I welcome Amendments 120 and 121 in the names of the noble Baronesses, Lady Suttie and Lady Ritchie. Along with others, I met representatives of SEFF and have spoken to other victims’ groups as well. There is undoubtedly a deep sense of hurt and betrayal among victims. It is obviously not their biggest concern, but one of the concerns that adds to their hurt is a level of confusion and anxiety over the definitions of general and specific immunity. There is a lack of clarity around that. While this will not get to the heart of the issue, at the very least, can the Minister give us some clarity around that today? I would welcome these probing amendments if they can draw out that information.

I also welcome Amendments 112 and 124, brought forward by the noble Lord, Lord Hain, and others. To move from a position in which immunity is effectively compulsory to one which gives a much greater level of discretion to the commission is a sensible step forward. I think the scope of Amendment 124 has been accepted and government Amendments 139 and 140, dealing specifically with the issues around withholding information, move in a way that was not the case a while ago: at least there has been an acceptance that, if immunity is to be granted, it cannot simply be a one-off gift and that, where there are breaches, it can be revoked. That is an important principle as well.

We believe our Amendment 114 to be complementary with the provisions on the withholding of information or the giving of wrong information, because it gives a clear pathway for those prosecutions which the offence created in Amendment 139 can progress. The giving of false information or the withholding of information are of importance for two reasons. First, if we are to be stuck with this inequity of immunity, it should not be some form of tick-box exercise that anybody can qualify for no matter what information they give. Also, if there is anything to be gained from this at all in terms of truth—I very much share the views of the noble Viscount, Lord Brookeborough, that this whole process will be entirely counterproductive rather than helpful—one of the things that will aggravate victims is if the information provided is false, if they are given false hope and wrong information about the deaths of their loved ones.

Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Ritchie of Downpatrick Excerpts

Committee stage
Tuesday 31st January 2023 Lords Chamber

[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.

[Baroness O'Loan (CB)]

My Lords, I support the amendments tabled by the noble Baronesses, Lady Suttie and Lady Ritchie, and the noble Lord, Lord Murphy, which provide for the inclusion of victim impact assessments, which are now part of normal criminal justice processes, in the consideration of a final report on a review or an investigation.

I cannot help noticing that the word “victims” appears but twice in the Bill. One is in Clause 49, which states that the designated persons are to be appointed by the Secretary of State under Clause 50 if he

“is satisfied that the person would make a significant contribution to the performance of the functions which are imposed by sections 43, 44 and 46”,

in Part 4, “Memorialising the Troubles”. Clause 50 states:

“When deciding whether to designate a person, the Secretary of State must have regard to whether the person is supported by different communities in Northern Ireland and will act independently of the influence of any other persons.”


Questions must arise here. Do they have to be supported by different communities? What are different communities? Are we back to sectarian headcounts? The legislation provides that:

“The designated persons must use their best endeavours to establish an advisory forum consisting of other persons”—


simply “use their best endeavours”, not just establish it—including

“persons who represent the views of victims and survivors of events and conduct forming part of the Troubles”.

The only other reference to victims appears in paragraph 5 of Schedule 11, which relates to the situation in which a person asks the Secretary of State for information about any application which may have been made for release under the sentences Act by a person who is serving a sentence of imprisonment for at least five years or for life. Two fairly insignificant changes are made to the information to be provided to the victim about the convicted person. In a Bill that the Government have presented as being designed to bring reconciliation to Northern Ireland, these minor but very important amendments would do something to promote the interests of victims.

Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Ritchie of Downpatrick Excerpts

Committee stage
Thursday 11th May 2023 Lords Chamber

[Baroness Suttie (LD)]

My Lords, I apologise to the Minister and the Committee that, due to an earlier engagement, I will unfortunately have to leave before the end of this group. If noble Lords will indulge me, I will speak briefly now. I agree with an awful lot of what the noble Lord, Lord Dodds, has said about the general approach to the Bill. This is the fourth day and we continue to have tremendous dissatisfaction with it, notwithstanding the generally positive approach of the Minister, who has been exemplary in his ability to listen to us and respond at every stage.

I thank the noble Lords, Lord Faulks and Lord Butler, and others for their explanation of newly tabled Amendment 154A, but it is potentially quite a detailed change. We should discuss it in much more detail, perhaps on Report. It could have significant consequences, so I hope we can look at it in more detail before then. I look forward to at least reading the Minister’s response in Hansard.

These Benches strongly agree with the powerful and detailed speeches from the noble Baroness, Lady O’Loan, and the noble Lord, Lord Browne. These primarily probing amendments correctly ask the Government to explain their position on the continuation of investigations. The amendments from the noble Baroness seeking to remove Clauses 39 and 40 raise some extremely important points. I look forward to reading the Minister’s response to many of the issues she raised, because they are still unresolved and we have not yet had satisfactory answers to them. As a general point, can he reassure the many victims and their families that their hopes of justice will not be undermined by those two clauses as drafted? Can he clarify the situation for those who had been given additional hope through an investigation, inquiry or inquest having started, and give us more details on the process and timescale proposed in this Bill?

The Minister knows that we are all very grateful for his active engagement on this Bill. He has shown repeatedly that he is prepared to listen and respond. However, I suggest that discussions with noble Lords such as the noble Baroness, Lady O’Loan, who has so much experience to share, about some of the realities and consequences of Clauses 39 and 40 would be very welcome—indeed, necessary—between now and Report.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, I support the amendments in the names of my noble friend Lord Browne and the noble Baroness, Lady O’Loan, to which I was a signatory along with my noble friend Lord Murphy on the Front Bench, because we are firmly opposed to the removal of access to inquests for victims. The standard bearer in all this should be adherence to the rights, needs and requirements of the many victims and survivors, as the noble Lord, Lord Dodds, is clearly also saying in his amendment. Victims and survivors should have primacy.

In all the debates on this Bill, noble Lords from Northern Ireland and across the House, political parties in Northern Ireland, the Commission for Victims and Survivors and all those organisations that represent the needs of victims and survivors have clearly enunciated their opposition to it as drafted because it does not provide for the needs of victims and survivors.

Like the noble Lord, Lord Dodds, and the noble Baroness, Lady O’Loan, I heard the Secretary of State refer yesterday to “game-changing amendments”, to which reference has been made today on the BBC Northern Ireland website. Can the Minister tell us what those game-changing amendments are that will be brought forward on Report? The only amendments should be those that reject this Bill; like all the other Bills that have been withdrawn or substantially changed, it should be withdrawn.

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[Lord Caine (Con)]

As I just made clear in my remarks, the appointment is as chief commissioner-designate, and the formal appointment will not take place until after Royal Assent. That will take into account any further considerations that the House will have upon this legislation. It is important to enable the work of the commissioner to start now in order that, once Royal Assent is—I hope—received, the commission’s work can begin without delay.

[Baroness Ritchie of Downpatrick (Lab)]

Further to the question from the noble Baroness, Lady O’Loan, could the Minister indicate in more detail the functions that Sir Declan Morgan will undertake in this interim period before Royal Assent is given?

[Lord Caine (Con)]

As I just said, the Secretary of State is laying a Written Ministerial Statement today which should be available very shortly, and I refer the noble Baroness to it for further detail on that.

Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Ritchie of Downpatrick Excerpts

Report stage
Wednesday 21st June 2023 Lords Chamber

[Lord Caine (Con)]

My Lords, at Second Reading I committed to carrying out extensive engagement, which has just been recognised by the noble Lord and the noble Baroness—and I hope it is recognised more widely across the House that this is exactly what I have done. The amendments that I am bringing forward in this group seek to take on board and respond to a number of concerns raised in the House and elsewhere, as far as possible.

The Government remain committed to delivering better outcomes for those most affected by the Troubles by providing more information in a more timely manner to more people than is possible under current mechanisms. This is a hugely difficult task, and the legislation—as I have admitted both in this House and in the media—requires some finely balanced political and moral choices that are challenging for many, myself included. We must be realistic about what we can deliver. I have reflected on how we can strengthen the Bill and I am thankful for the many conversations that I have had on this, including with the Commissioner for Victims and Survivors in Northern Ireland, Ian Jeffers. While we have our differences, I am grateful for the way in which he has always conducted our meetings. It is widely recognised that the current mechanisms for addressing legacy issues provide satisfactory outcomes to very few of those affected, leaving far too many victims and families—including many of those who died while serving the state—empty-handed.

Amendments 2, 3 and 7 to Clause 2 in my name place the commission, when exercising its functions, under a duty to have regard to the general interests of persons affected by Troubles-related deaths and serious injuries. These amendments also provide that, in exercising its functions, the commission’s principal objective is to promote reconciliation. It is our view that putting more information in the public domain via an effective information recovery process, subject to the exceptions set out in Clause 4, will help to do that. These amendments seek to strengthen our commitment to victims, provide greater direction to the commissioner and respond to the debate in Committee, where your Lordships raised concerns over the extent to which the commission would take a victim-centred approach to its work.

Amendment 85 will place the commissioner under a new duty to offer victims and their families the opportunity to submit personal impact statements setting out how they have been affected by a Troubles-related death or serious injury. Amendment 86 creates a corresponding duty to publish those statements, subject to limited exceptions. This will give families a voice in the process. As the noble Baroness, Lady Smith of Basildon, put it in Committee:

“Without that, this will be one of the biggest failures of the Bill”.—[Official Report, 31/1/23; col. 646.]


That is something that we are attempting to rectify. The new duty corresponds to recommendations made by the Commissioner for Victims and Survivors, Ian Jeffers, and is complemented by a separate duty to publish the statement if the individual so wishes. I am also grateful to the noble Baroness, Lady Suttie, for raising this amendment in Committee.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, I thank the Minister for his explanation of the amendments in this group about making the Bill more victim-centred. Undoubtedly, the most important people in all this are the victims. Many of them have passed on and their families—some of whom have passed on, through the passage of time—have not seen justice and truth: the very things they were looking for. I acknowledge what both the Minister and my noble friend Lord Murphy said, on the summer solstice, the longest day of the year, which is the day that victims of the Troubles in Northern Ireland are remembered.

In relation to Amendment 2, can the Minister, in his wind-up, explain the practical application of the amendment on the operation of the ICRIR. How will the amendment really promote reconciliation in the exercise of those functions, given that the Bill has been opposed by legal representatives, such as the European Council of Ministers, political representatives from the Irish Government and all the political parties in Northern Ireland, and the victims and survivors—a wide spectrum?

[Lord Weir of Ballyholme (DUP)]

My Lords, first, my colleagues and I associate ourselves with the earlier remarks noting and indeed supporting real victims of the Troubles. It is important that they are at the forefront of our mind as we debate all these amendments today.

I acknowledge that the amendments before us in this group all represent very small steps forward. They are small ameliorations and small improvements. It is difficult to quibble with their exact wording; there is nothing that we would seek to divide on in this group of amendments. However, by their very nature, they are symptomatic of the wider problems with this Bill. Whatever small improvements are made, they cannot turn the irreconcilable and the unacceptable into something that is acceptable and worthy of legislation. They omit some of the most important aspects. Indeed, part of the problem with these amendments is that they have sins of omission, rather than sins of commission. What do I mean by that? If we first take Amendment 2, we see that it introduces the concept of reconciliation, which is on the face of the Bill, directly into the work of the commission, but there is a danger of that being seen as tokenistic. At no stage does the Bill actually define what the objectives of reconciliation are. There is a danger that this has been thrown in simply so that there can be a direct reference to reconciliation, but with no meat put on the substance.

The other, more fundamental, issue regarding reconciliation is that many victims will see this legislation as being entirely unacceptable, taking away from them any prospect at all of justice and granting immunity to those who carried out some of the most heinous crimes during the Troubles. Therefore, the idea of reconciliation being at the heart of the Bill while immunity from prosecution remains is a central paradox of the Bill that is not properly addressed by Amendment 2.

On Amendment 3, the weakness is in the reference to the

“general interests of persons affected”

by the Troubles. Having a victim-centred is something that no one would disagree with but, in this wording, no distinction is drawn, for example, between a perpetrator and a victim. Someone who, for example, could have suffered injuries or death as a result of their own terrorist actions is put on the same plain as those innocent victims. I think that, again, there has been a problem of successive Governments failing to tackle this particular problem.

Finally, on Amendment 85 and 86, the involvement of victim statements is generally welcomed but, again, this belies the flaws within this process as a whole. Victim statements are commonplace within the criminal law and give an opportunity for those who have suffered directly to have their views taken into account. However, with that, the norm is that a victim impact assessment is taken into account by the courts to establish, for example, whether a tariff should be greater or less than would otherwise be imposed. The views of the victims can genuinely be taken into account. In this case, however, while it is welcome that those views will be published, it will have no impact whatever on the potential immunity. Therefore, the question for many victims will be: what is the point if whatever they say has no impact whatever?

We do not oppose these amendments and will not be dividing on them, but they fundamentally do not change the flawed nature of this Bill.

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I hope the Minister will take on board some of the amendments we have tabled. I look forward to his response.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, we are now on one of the main debates in this Bill: the issue of amnesty and immunity. As the noble Lord, Lord Dodds, and the noble and right reverend Lord, Lord Eames, said, this issue goes to the heart of the legislation, but it also drives a dagger through victims in Northern Ireland—people who have endured immeasurable suffering because of the loss of their loved ones in unexplained circumstances, because many of them have not been told how or why that loss happened, or the nature of the wounds inflicted on them. Those who are victims suffer many wounds in later life that can never be measured in terms of compensation or monetarily but can be measured only in terms of loss of family lives and family time, because they have lost their loved ones. We all know many of those people, whose lives have been totally turned around by the actions of paramilitaries and—we cannot deny it—of state forces.

However, this issue of immunity strikes at the heart of everybody. As the noble and right reverend Lord, Lord Eames, said, there is universal opposition to this Bill and this particular part of it on immunity, and the clauses dealing with the withdrawal of access to inquiries and investigations. That is very much a denial of basic human rights in any normal democracy.

In the unavoidable absence of my noble friend Lord Hain, I will speak to Amendment 63, which is in his name and those of the noble Baroness, Lady O’Loan, the noble Lord, Lord Blair of Boughton, and my noble friend Lord Murphy of Torfaen. As the Bill stands with the Government’s amendments, there are only two circumstances in which immunity for some of the most heinous crimes imaginable can be revoked: if there is a conviction for misleading the ICRIR or for a subsequent terrorist offence. This is not good enough. Amendment 63 sets out other circumstances which would put in place at least some accountability measures as to the future conduct of perpetrators.

Are the Government seriously saying that, as far as they are concerned, someone who has confessed to a sectarian murder, for example, is perfectly free to harass that person’s family, laugh at their grief, celebrate their loss and still retain their immunity? Are they saying that they should still retain their immunity if they are a threat to the public? Where in this legislation is there any element of accountability for perpetrators? They do not even have to express remorse or regret for their actions. Presumably, they could appear before the ICRIR, describe what they have done to the best of their knowledge and belief, say, “By the way, I would do it all over again”, and still walk away with lifelong immunity in their pocket. As far as the world at large is concerned, they will not have a stain on their character, but we will never forget, nor will those who were the victims. They will carry the cross of the loss of their loved ones, in the most heinous circumstances, to their graves.

If we let this element of the legislation go through as the Government currently propose, we will be telling victims and survivors that we care more about the perpetrators than we do about them. I cannot believe that that is the message this House wants to send. The clauses regarding conditional immunity and those dealing with the eradication of inquests and investigations undoubtedly go to the very heart of this legacy debate. To impose conditional immunity and remove access to inquests and inquiries is a denial of basic civil liberties.

It is worth noting the following from the Council of Europe’s Commissioner for Human Rights, Dunja Mijatović, who spoke yesterday on immunity. She said:

“Despite this, the UK government has decided to go ahead with the Bill in a way that does not recognise Northern Ireland’s violent past or honours the suffering of victims. While the government has recently published amendments, these leave the fundamental problems with the Bill intact, such as the conditional immunity scheme that would result in impunity for serious human rights violations”.


She went on to talk about the cutting off of

“avenues to justice for victims”,

and questioned the ability of the ICRIR

“to deliver outcomes that would meet human rights standards”.

I would like the Minister to comment on the commissioner’s words and the actions the Government will take on foot of that.

It is noteworthy that victims organisations throughout Northern Ireland, such as Amnesty, the CAJ and the Human Rights Commission, have asserted in their submissions that the government amendments are not compliant with the provisions required by the ECHR—a point denied by the Secretary of State yesterday.

I am told that the Secretary of State relies on the amnesty provisions in the weapons Act as a basis for the amnesty in this Bill. When he was Secretary of State, Sir Patrick Mayhew, later Lord Mayhew—a former colleague of the Minister—said on the then Northern Ireland Arms Decommissioning Bill that that amnesty was “tightly defined”, and

“available only to those who adhere to the strict terms of a decommissioning scheme, and only for offences that they technically commit in respect of anything done in accordance with such a scheme”—

mainly offences of a possessory nature. He continued by saying that these provisions

“in no sense constitute some form of general amnesty covering other offences: the security forces will go on with undiminished resolution pursuing and bringing to justice those responsible for other crimes”.—[Official Report, Commons, 9/12/1996; col. 24.]

How does that square with this information and this clause on immunity? Maybe the Minister could comment on that in the light of the Government’s current Bill.

For all these reasons, I support the amendments in the names of my noble friends Lord Hain and Lord Murphy. If my noble friend Lord Murphy pushes Amendment 66 to a vote on Monday, I will support him in the Division.

--- Later in debate ---

[Lord Bew (CB)]

My Lords, I apologise for being, as they say in Northern Ireland, a little bit previous. I want to address the fairness of the functioning of the commission. My concerns on this matter, like many people in Northern Ireland and on this island, have been greatly allayed by the appointment of Sir Declan Morgan as the chair of the commission. None the less, fairness has to be at the heart of the future working of the commission. This applies both to people who might work for the state forces who come before it, and those who do not.

It has been established in recent years that good practice in such inquiries is what might be called pre-Maxwellisation. I recall the Green report to the Commons Treasury Committee of 2016, which laid out ground rules for handling people who come before a commission in guaranteeing fairness. I know that to some, these will be seen as exaggerated concerns, but we have talked a lot about the international requirements and obligations that the United Kingdom has under Article 2. There is also an international requirement in, I think, Article 6 to protect reputation and to be fair to the reputation of individuals.

I wish to return to the theme—the Minister has listened already with some responsiveness to it—of the importance of guaranteeing as much as we can that when the commission is set up, it works as fairly as possible in respect of the rights of the individuals who may be coming before it.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, with permission, and in the unavoidable absence of my noble friend Lord Hain, I will speak to Amendment 31, upon which a vote will take place on Monday. The amendment is in his name and those of the noble Baroness, Lady O’Loan, the noble Lord, Lord Blair, and my noble friend Lord Murphy of Torfaen. This amendment seeks to turn a terrible Bill into one that could at least act in the interests of victims, rather than the perpetrators of horrendous crimes of violence, by inserting as a method of bringing some form of justice a model based upon Operation Kenova, led by former Chief Constable Jon Boutcher. This model was referred to by the noble Baroness, Lady O’Loan.

Operation Kenova has the interests of victims, survivors and their families at its core, in stark contrast to the current legislation, in which victims and survivors are barely mentioned and to which they are universally opposed, along with each and every political party in Northern Ireland, as well as the Irish Government. In Operation Kenova, there is a proven model of the way to deal effectively with the legacy of Northern Ireland’s violent past.

After his remarks on this amendment in Committee, my noble friend Lord Hain wrote a detailed letter of rebuttal to the Minister. Sadly, the Minister’s reply completely failed to rebut any of my noble friend’s arguments. While acknowledging the excellent work of Operation Kenova, the Minister, the noble Lord, Lord Caine, made a number of assertions that simply do not stack up. The first was that, in some cases, a full Kenova-type investigation would not be appropriate if a family simply wanted information that could be readily found. The second was that an Operation Kenova model could not be upscaled and it would take too long to deal with the legacy case load. The third was that it would not be value for money. Each of these contentions does not stand up to scrutiny.

On the first, this circumstance has arisen with Operation Kenova, and it has been dealt with in a sensible and pragmatic way by the Kenova team, as the family requested. It is simply not an issue. Indeed, Kenova has been praised by victims’ groups precisely because of its effective truth recovery, providing information never before revealed on what actually happened to loved ones. In fact, Jon Boutcher visited a gentleman who lived quite close to me and whose son was brutally murdered. He did so before the gentleman, sadly, passed away, to explain the circumstances in which his son was murdered. That person was deeply grateful for that information and then, sadly, died some days later.

On the other contentions, I urge the Minister to take note of the independent National Police Chiefs’ Council’s review of Operation Kenova. The reviewers are recognised nationally as experts in investigations, especially homicide investigations—they deal in analysis, not assertion. On upscaling to deal with outstanding legacy cases, they said that

“the Terms of Reference … included the question as to whether Kenova might offer a ‘scalable’ model upon which to build any future Legacy Investigative capability for Northern Ireland. Having exhaustively reviewed its strategy, governance, partnerships and all facets of its operations, the review team firmly believes that Kenova would form the best possible foundation for this purpose”.

In his evidence to the Northern Ireland Affairs Committee on 2 September 2020, Jon Boutcher, who leads Kenova, said that legacy cases could be addressed within “five to 10 years” because Operation Kenova has developed processes that can now carry out comprehensive investigations expeditiously, not least because it now has unfettered access to security and police files that have hitherto been hidden. This is the considered view of a hugely experienced and highly regarded senior investigator.

--- Later in debate ---

In response to concerns raised by the Lord Advocate, which I had the pleasure of discussing last week with the Solicitor-General for Scotland, Amendment 87 in my name ensures that in circumstances where, following a review, the commissioner for investigations considers that there is evidence that an offence has been committed under Scots law—and immunity from prosecution for that offence has not been granted—the Lord Advocate has the power to direct a referral allowing her to consider the case for prosecution. The commissioner for investigations must comply with such a direction unless the suspect has been granted immunity from prosecution for the offence concerned. This demonstrates the Government’s commitment to respecting the particular constitutional arrangements in Scotland regarding the role of the Lord Advocate and ensuring that the Bill operates as intended in all three of the UK’s criminal justice jurisdictions. I beg to move.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, I believe that the Bill and the government amendments to this clause to do with inquests and judicial outcomes clearly undermine the fundamental tenet of basic human rights: the right to access to inquests and investigations for those seeking truth and justice following the heinous murder of their loved ones. Clause 40 deals with investigations, inquiries and inquests, but the Government seek to eradicate such provisions.

In my former role as MP for South Down, as an MLA for that constituency and as a district councillor, on many occasions I met families who had lost their parents, their siblings or their sons and daughters through summary execution by paramilitaries or as a result of state violence. On all occasions, those people wanted truth, justice and, above all, to know what had happened to their loved ones, why it had happened, what were the circumstances, and most of all, whether it could have been avoided.

I suppose that I have the most direct experience with Loughinisland, where six men were gunned down on 18 June 1994. That was subject to an inquiry by the former Police Ombudsman for Northern Ireland, the noble Baroness, Lady O’Loan, which was then progressed by her successors until eventually a Police Ombudsman report was published in 2016 which found elements of collusive behaviour between security forces and members of loyalist paramilitary organisations. I knew many of those people who were killed, and I have to say that the people I knew had absolutely no participation in terrorism. They abhorred violence, and perhaps their only political act was to vote. In fact, two of those people who were killed on that night were indirectly related to me, one of them the eldest man to be killed in the Troubles; his brother was married to my aunt. Those things you do not easily forget.

Clause 40 deals with investigations and the Government seek to eradicate those provisions. I am a signatory to Amendment 110 in the name of the noble Baroness, O’Loan, which seeks to remove this clause from the Bill and try to ensure a redress system. This view is supported by the Commission for Victims and Survivors, Amnesty and the CAJ, and latterly by the Tánaiste, Micheál Martin. He wrote an opinion piece this week for the Financial Times in which he states:

“Existing mechanisms for dealing with the legacy of the past, while imperfect, deliver important outcomes for those families, such as the vindication of a murdered loved one’s innocence. In its Legacy bill, the UK government intends to permanently close off access to these mechanisms—inquests, police ombudsman investigations, civil cases and police investigations—which are working for families and, importantly, demonstrating a vindication of the state’s obligations under the European Convention on Human Rights to investigate killings effectively”.


With the government amendments in this group, all investigations into harmful conduct forming part of the Troubles will be brought to an end by the Bill and by the amendment of the deadline to 1 May 2024. That applies to inquests, investigations, inquiries and investigations by the Police Ombudsman. After that date, the only remaining available investigation will be a toothless light-touch review by the ICRIR. This is a much inferior mechanism to those that currently exist.

For example, in the case of the late Sean Brown from Bellaghy, whose inquest hearings were last week—he was murdered by loyalist paramilitaries about 30 years ago—if information from the MoD and the police does not reach the inquest hearing, which has been delayed, the family fear that what they believe to be deliberate delaying tactics, which have proved successful for the state agencies, will continue until 1 May 2024 and there will therefore be no redress. The late Sean Brown’s widow and family simply want truth and justice via the inquest system. It is important that this right is not denied to them through this arbitrary deadline of 1 May 2024. I am also aware of police widows who seek similar redress, which they are entitled to.

The Commission for Victims and Survivors wants the inquest system to remain as it is because of a number of families who are concerned about this change of approach. These are the people who carry the weight of loss in circumstances that have never been properly explained. The 1 May 2024 deadline has added to that weight and their sorrow.

The Human Rights Commission’s view is that the existing system should be developed, not regressed. There have been significant steps forward for several families in uncovering the truth and seeking justice that would not have been possible without the existing systems—I have already referred to Loughinisland and the Police Ombudsman’s investigation. That point is emphasised by the CAJ, which states that the Bill will shut down existing legacy mechanisms when such mechanisms are increasingly delivering for families. The government amendments are designed to copper-fasten and extend this process.

I therefore support the amendment in the name of the noble Baroness, Lady O’Loan, which seeks to remove Clause 40 and ensure that the existing work, which is being done very efficiently and is helpful to families, can continue. Can the Minister confirm whether he received support for or opposition to these amendments and for the Government’s intended purpose in this legacy Bill in all the meetings he had over the last number of months? I urge him to withdraw the 1 May 2024 deadline and go back to the drawing board of the Stormont House agreement as a basis for dealing with legacy, because it has the involvement of the parties and of the Irish Government. Will he and government colleagues meet the Irish Government to discuss this issue as a matter of priority? If the noble Baroness moves her amendment on Monday, I will be very happy to support it.

[Baroness O’Loan (CB)]

My Lords, group 6 refers to criminal justice outcomes. These really are the critical clauses. They remove from those affected by deaths and serious injuries between 1966 and 1998 the ability to pursue civil actions for the loss or damage that they have suffered; the ability to have investigations, as required by the ECHR; and, in cases where people have suffered a violent death, the ability to have inquests in respect of those deaths.

The noble Lord, Lord Hogan-Howe, who cannot be with us this evening, and I asked the Government to provide definitions of “review” and “criminal investigation” in order to inform your Lordships’ understanding of the difference between the two, which is a vital issue in this Bill. The Minister expressed the view that it was not necessary to provide such definitions. However, in its report of January 2021 on the work of Operation Kenova and the Glenanne review—Operation Denton—the National Police Chiefs’ Council explained:

“Operation Denton differs from Kenova in that it is being conducted as a review, and not as a criminal investigation at this time. This makes the approach by the operational team fundamentally different to that of Kenova”,


which is an investigation,

“from an evidential perspective”.

That fundamental difference of approach is why His Majesty’s Government were so strongly criticised for making the function of the ICRIR to conduct reviews of deaths. That confusion continues to permeate the legislation. Even by Third Reading, perhaps the Minister might seek the assistance of the National Police Chiefs’ Council and provide us with an amendment to define “review” and “investigation”, which would help the House in making its decisions.

In future, despite the Minister’s Amendment 32 to Clause 23, it is for the commissioner to decide whether investigations should form part of a review. Once the Act comes into force, there will be no criminal investigations as we know them today by the police or other agencies in relation to Troubles-related offences. Existing investigations will cease unless a decision to prosecute has been made and the ongoing investigation is for the purpose of that prosecution. A few minutes ago, the Minister expressed the hope that Operations Kenova and Denton would be complete by 1 May 2024. However, I have to point out to him that that is not to be determined by Kenova and Denton, which have finished their work and are simply waiting for decisions from the Director of Public Prosecutions, security reviews, Maxwellisation and that sort of thing. There is very little that Kenova or Denton can do; it is for others to do this. We have been told, however, that others cannot do it because there are no resources; we are also told that that is the fault of the Northern Ireland Assembly, which does not sit. This does not seem to be a particularly constructive approach to the problem.

Unless a family member, the Secretary of State for Northern Ireland, the Attorney-General for Northern Ireland or the Advocate-General for Northern Ireland asks for a review and the ICRIR decides both that there should be a review and that the review should take the form of a criminal investigation, other investigations will simply cease without any provision for victims. Earlier, I referred in particular to the case of those three young police officers who were killed in the Kinnego Embankment explosion and whose file has been referred to the DPP. It would be wrong for these cases simply to die with the passing of this Bill.

In more limited circumstances where a review involves a death that was caused directly by conduct during the Troubles, coroners, sheriffs and procurators fiscal in Scotland can ask for a review. In all other cases, the investigation will cease and there will be no investigation and no provision for victims.

As a consequence of the Government’s amendments to this Bill, even those that say that there must be compliance with the obligations imposed by the Human Rights Act, such compliance is de facto not possible because, among other reasons, there is provision for immunity from prosecution for murderers and the ICRIR does not have unqualified access to information held by relevant agencies under Clause 5. Despite the Minister’s comments on the previous group, I, as Police Ombudsman for Northern Ireland, had the right to require the delivery of information. The ICRIR has the right only to reasonably request information. It is different.

Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Ritchie of Downpatrick Excerpts

Report stage
Monday 26th June 2023 Lords Chamber

Moved by

[Baroness Ritchie of Downpatrick]

31: Clause 13, page 11, line 13, at end insert—
“(3A) The Commissioner for Investigations must ensure that each review—(a) is carried out to criminal justice standards as modelled on Operation Kenova,(b) complies fully with obligations under the European Convention on Human Rights,(c) gathers as much information as possible in relation to the death or harmful conduct, and(d) explores all evidential opportunities.(3B) “Operation Kenova” means the independent investigation established under the overall command of former Chief Constable Jon Boutcher in 2016, known as Operation Kenova.”Member’s explanatory statement
This amendment establishes minimum standards for a “review” conducted by the ICRIR to ensure conduct is investigated to criminal justice standards, along the lines of Operation Kenova.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, we had an extensive debate on Amendment 31 last Wednesday and on behalf of my noble friend Lord Hain, I want to test the opinion of the House.

--- Later in debate ---

[Lord Dodds of Duncairn (DUP)]

My Lords, we now come to this group of amendments on memorialisation. This is a very difficult and complex area that we have to wrestle with, both in this Bill and more widely in Northern Ireland. The purpose of Amendments 114A and 114B in my name and those of my noble friends is to ensure that memorialisation activities in no way end up glorifying, eulogising or defending terrorism in any form, whatever side of the community it comes from.

Sadly, as we have said in previous debates on this Bill, it appears there has been an increase in the carrying out of commemorations and eulogies for terrorists by elected representatives including Members of Parliament, Members of the Northern Ireland Assembly, a person who would seek to be the First Minister of Northern Ireland, academics and others. They have all commemorated the activities of criminals and murderers in the IRA. It is important that in this Bill—certainly, I will seek reassurances from the Minister on this issue—that we make it clear that that type of eulogy, commemoration or glorification is not acceptable. For the victims, this is an extremely important issue.

Time and again when you meet victims of the terrorist criminal gangs who carried out so much violence in Northern Ireland, the issue they raise is the continued trauma that they have to endure as a result of such celebrations and commemorations. They feel that their trauma, hurt and pain are sidelined while those criminals who carried out this type of heinous activity are elevated.

The purpose of Amendment 114A is

“to ensure that designated persons responsible for making recommendations about the initiation and carrying out of relevant memorialisation activities are under a duty to prevent the glorification of Troubles-related offences”.

Clause 48 tells us that designated persons carrying out Troubles-related work must have due regard

“to the need to ensure that … there is support from different communities in Northern Ireland for the way in which that programme is carried out, and … a variety of views of the Troubles is taken into account in carrying out that programme”.

Those responsible for drafting the memorialisation strategy are bound by this duty under Clause 51(1).

This focus on representativeness can be problematic, given that there are, as I have outlined, sections of our community, including those in high places and political life, who not only refuse to disavow violence but actually express the view that glorifying terrorism via parades, vigils, rallies and so on is a perfectly legitimate memorialisation activity when it is patently not. The Government propose to require the Troubles work programme to promote reconciliation, anti-sectarianism and non-recurrence of political and sectarian hostility between people in Northern Ireland. However, none of these terms are defined. It should be made clear in the Bill that designated persons are not permitted to recommend activities that a reasonable person in Northern Ireland would regard as glorifying past terrorism—in fact, they should be under a duty to prevent this. Memorialisation should not open the door to revisionism and the rule of law must be respected.

Amendment 114B is intended to ensure that only innocent victims are included as victims in the memorialisation strategy. It is critical that the law in this respect is in line with the line that the Government took in relation to the payment of compensation to victims of the Troubles in the Troubles permanent disablement payment scheme and Regulation 6 of the Victims’ Payments Regulations 2020, in which it was made clear, rightly, that someone who had injured themselves as a result of their own actions by being engaged in terrorism would not be eligible under the scheme. There was a difference between those who were injured in innocent circumstances as a result of terrorism carried out by others and those who were injured by their own hand.

We believe it is important for the sake of the victims and respect for the rule of law that a memorialisation strategy does not give credence to terrorists injured or killed by their own hands. They should not be considered victims for the purposes of consultation under this section.

It is regrettable that we have to even raise these issues and put them on the record in the House. However, sadly, as time moves on, the years pass and we move further away from the crimes that were carried out in the names of paramilitaries in Northern Ireland—IRA and loyalist alike—there is a tendency among those in Sinn Féin to ensure that the history of the past is rewritten.

I have a recent example. Someone who was described as a commentator but who was actually a teacher in a secondary school came on to say, “Well, you know, if people are engaging in memorial activities for the military, such as acts of remembrance in November, it’s perfectly acceptable for republicans to remember their dead”. In other words, they were suggesting equivalence between members of the security forces and terrorists who set out with murder and mayhem in their hearts and as the purpose of their activities.

There is no, and can never be, equivalence between members of the security forces in Northern Ireland—Army, Ulster Defence Regiment, Royal Ulster Constabulary, PSNI—and those who, by contrast, came as terrorists to carry out bloodshed against the rule of law. It is important to put that firmly on the record in this debate.

I would like the Minister to consider very carefully the purpose behind these amendments and to reassure us that the memorialisation strategy will indeed reflect the rule of law and will not end up glorifying or eulogising terrorism in any form.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, I have a certain sympathy with Amendment 114A in the names of the noble Lords, Lord Dodds, Lord Weir and Lord Morrow, because, like the noble Lord, Lord Dodds, I have seen so much revisionism over the last number of years. We have seen revisionism from paramilitary forces in order to justify their campaign of terror and to forget about the real victims, who were never involved in perpetrating acts of violence but were simply in the wrong place at the wrong time.

Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Ritchie of Downpatrick Excerpts

Consideration of Commons amendments
Tuesday 5th September 2023 Lords Chamber

There will be much discussion about the technicalities and what we are proposing to do, but I make this appeal to the House. Please hear the voices of those who have condemned what is happening and have made the simple human plea, “Please remember we have carried the hurt, pain and loss over the Troubles in Northern Ireland, and you have the opportunity now to do something about it”. Please do not miss the opportunity.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, it is a pleasure to follow the noble and right reverend Lord, Lord Eames, on this very difficult and vexatious issue that impacts most families not only in Northern Ireland and Ireland but across the wider UK. Many people have been impacted by the untimely and summary death of a family member as a result of the Troubles. Therefore, very clearly, the victims should be central to the Bill—as this House has said; it was articulated by the noble and right reverend Lord, Lord Eames, and the noble Baroness, Lady O’Loan. However, I am sorry to say that the victims are not central to the Bill. This is probably an issue of expedience on the part of the Government to deal with this issue—and that is totally unacceptable. I will support both amendments in the names of my noble friends Lord Hain and Lord Murphy, if they choose to put them to Divisions.

It is interesting to note that we are joined today in the Public Gallery by some of the representatives of victims from Northern Ireland, including Raymond McCord, to whom the noble Baroness, Lady O’Loan, referred, and his colleagues. They have direct experience. They have told the Government, the Irish Government, the European Union and political parties in Northern Ireland, this House and the other place, that the Bill will not meet the needs of victims and that victims will be undermined.

On Monday of last week, 28 August, Sir Declan Morgan gave an interview to the Irish News, to which my noble friends Lord Hain and Lord Murphy already referred. When I bought my copy of the Irish News last Monday morning, I was immediately struck by heading, “Legacy Body Chair Welcomes Any Legal Challenges”. I would like to tell him that there will be legal challenges; they will come not only from the victims’ groups but, probably, from the Irish Government and other bodies in the European Union. The European Commissioner has already highlighted the issues around immunity. There is no doubt that the Bill, as it exists, will impede justice and truth; it will relegate victims, not to the second division but to the eighth or ninth division.

I implore the Government at this late hour to support the amendments in the names of my noble colleagues. If that is not possible, I beg them to stop the Bill and to stop further hurt in an already divided society that has seen so much over the last number of weeks in relation to policing, to victims and to the Bill and legacy. Those were two thorny issues that came out of the Good Friday agreement which required resolution. We thought that the policing issue was resolved but now it appears that a greater investment in the structures is required to ensure that there is proper retention, proper recruitment and a return to 50:50 recruitment, and that police officers and civilian staff are properly protected. However, victims also need to be protected.

In his wind-up, will the Minister demonstrate to this House how the Bill will be human rights compliant? I note that Sir Declan Morgan has said that he is committed to ensuring that the commission is human rights compliant. From his interview, I would deduce that Sir Declan is probably now querying whether the Bill, if enacted, will be human rights compliant, and whether it will comply with the ECHR. I know where I stand. I stand with the victims of the Troubles on all sides; whether their loved ones were executed by paramilitaries or by state forces, victims come first in all of this.

[Lord Dodds of Duncairn (DUP)]

My Lords, we return to this issue of legacy, almost certainly for the last time in this House as far as the Bill is concerned but certainly not for the last time in this or the other place—and possibly sooner than expected.

I have no difficulty in supporting the amendments brought forward by the noble Lord, Lord Murphy of Torfaen, which represent an improvement on what is currently before the House. We all know and acknowledge, and it has been said across all sides of the House, that all the amendments, including the ones brought forward by the Government during the passage of the Bill, do not and cannot rectify the fundamental flaw at the heart of the Bill, which is that it provides immunity from prosecution to terrorists. As the noble and right reverend Lord, Lord Eames, said so passionately and eloquently, what will future generations think of this mother of Parliaments, which was prepared to do such a thing to innocent families?

Nevertheless, some important work has been done to try to mitigate some of the worst aspects of this wretched piece of legislation, although I regret that, despite our best efforts, the glorification of terrorism has still not been adequately addressed in the Government’s amendments. Again, week after week, in Northern Ireland and in the Irish Republic, we see Sinn Féin, and the person who wants to be the First Minister of Northern Ireland, supporting and glorifying the bloodshed and terrorism that the IRA committed. They were not the only ones to engage in terrorism but they are the ones that are most to the fore in glorifying it, much to the trauma, pain and hurt of their victims.

The Government have brought forward a number of amendments, some of which had been originally tabled in the other place by my party colleagues, especially Gavin Robinson. I think of the repeal of the Northern Ireland (Sentences) Act 1998, which the Minister referred to, as well as the increase in fines. It is also beneficial to the Bill that there is now the ability to revoke immunity should it be obtained through deception or lies. Again, that was tabled in the other place by my party colleagues. The Government committed in the other place to delivering that change in this House, and it is good that that was done.

I am glad that in these amendments, both in the other place and here, a lot of heavy lifting has been done by colleagues over many hours—in opposition parties, as well as by colleagues on our Benches—in an attempt to improve what is fundamentally flawed during long, what appeared sometimes to be interminable, debates, often with few outside those who were really interested present.

It has been argued by some that because of previous betrayals of victims and the previous setting aside over many years of the principle of justice in various ways, we should now somehow not be too hard on this Bill. People have referred to the on-the-runs legislation, to letters of comfort handed out to terrorists, to republicans, via Sinn Féin, and indeed to many other things that happened to the hurt of victims under both Labour and Conservative Governments.

But, my Lords, that is not something that victims say to us today. I am glad that our party in and outside Parliament, and many others, stood with innocent victims and opposed those previous obnoxious steps which were taken to appease terrorists and their supporters at that time. We opposed them then, just as we oppose this legislation, not out of any idea of populism but as a matter of principle. We have been consistent in that.

Indeed, we opposed one of the greatest betrayals of victims, when those guilty of some of the most heinous crimes imaginable, including mass murder, were given early release in 1998—something that to this day traumatises many victims, as they will tell you if you speak to them, and which was cheered on by those who should have known better, and indeed did know better at the time.

It is right as we finish these debates in this House to call out some of those people who purport to stand on the side of victims. We hear about all the political parties which are opposed to this legislation, and that is right, but Sinn Féin purports to talk about victims, victims’ rights and justice, and it is the greatest perpetrator of murder, which still to this day glorifies and defends it. It cannot speak for victims, and its cynicism and opportunism should be called out. Nor can the Irish Government, for that matter, who for many decades harboured terrorist fugitives from Northern Ireland and refused to extradite them there for justice. Whatever about the issues in the Bill—and we are opposed to it—it ill becomes the Irish Government in particular to complain. Even to this day, they refuse to co-operate properly in regard to allegations of collusion between the Garda Siochana and IRA terrorists in relation to a number of incidents in the Irish Republic and refuse to instigate a public inquiry in relation to the Omagh atrocity.

All along, we have believed, as other noble Lords and Baronesses have said, that the victims should be listened to. It is their crying that should be taken account of. If the evidence justifies it, terrorists should not be able to hide or escape justice by having the ability to invoke some kind of immunity or amnesty—conditional or otherwise.

In closing, I want to pay tribute to those innocent victims. I think of the delegation which came to Westminster in late January of this year. Among them was Pam Morrison from County Fermanagh, who will be known to many from Northern Ireland, whose three brothers, the Graham brothers, were all brutally murdered by the IRA one by one between 1981 and 1985. She also lost her sister, serving with the UDR: four brothers and sisters. Pam pleaded with the Government to listen. They have refused, but I have no doubt that we will hear her voice again, and we will all return to this subject soon.

--- Later in debate ---

I give way—with reluctance, I am afraid.

[Baroness Ritchie of Downpatrick (Lab)]

I thank the Minister for taking my intervention. In that same article in the Irish News there was a subheading which indicated that the staff to assist Sir Declan would come from the Northern Ireland Office. Can the Minister confirm that this is correct and, if so, how will it address the issue of independence of the commission?

[Lord Caine (Con)]

There are officials from the Northern Ireland Office assisting with the establishment of the body, but the staffing of the body will be entirely for the commission itself; it is not a matter for the Northern Ireland Office. The legislation is not yet passed, so the commission will not formally come into being until next year. All that is happening is that officials from my department are helping with the establishment during that transition phase.

As I said, this has taken on something of a Second Reading debate. We have heard many points rehearsed extensively. Therefore, I conclude by asking noble Lords not to insist on Motions A1 and B1 but instead to agree with the Commons amendments in lieu under Motions A, B and C, and pass this Bill; that is the clear will of the elected House of Commons. I beg to move.

Northern Ireland Troubles (Legacy and Reconciliation) Bill

Baroness Ritchie of Downpatrick Excerpts

Consideration of Commons amendments
Tuesday 12th September 2023 Lords Chamber

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, it is a pleasure to follow the noble Lord, Lord Weir. Noble Lords have been consistent across the House in their opposition to the contents of this Bill, which I believe are deeply iniquitous. For me, they represent a denial of basic human rights—access to justice and truth, the very things that victims and survivors have yearned for over many years.

I am deeply disappointed that the Commons, on a majority vote, rejected our reasonable amendment, which was supported across this House last week. None the less, I do not think that the issue will be resolved by this Bill. I believe that Sir Declan and his commissioners will meet many legal challenges; in fact, he invited them in his Irish News interview on Monday 28 August, which suggests that he might have doubts about this process.

Notwithstanding that, this House has stood solidly and steadfastly with the victims and survivors. I was disappointed again when I heard the Secretary of State in an interview a few days ago, as he did not seem to reflect on, think about, empathise with or sympathise with the views of victims. He simply dismissed them. This was another denial of their right to justice and human rights. Always remember that victims of the Troubles have suffered immeasurably in many ways, whether physically or mentally, over a long period, through the loss of loved ones.

So, we still disagree with this Bill. I am pleased that my honourable friend the Shadow Secretary of State has indicated that a future Labour Government will repeal the Act. I look forward to that day, because I know where I stand: it is with the victims and survivors, right across the board.

[Baroness O'Loan (CB)]

My Lords, I rise to speak in opposition to the Government’s removal of the opportunity for family members of those who died in the Troubles to play a role in the decision as to whether immunity should be granted under the Bill. Accepting your Lordships’ amendment would have given victims the opportunity, at least, to have a role in the decision as to whether to grant murderers immunity for the murder of their loved one.

Today is a terrible day for the people of the United Kingdom and for the rule of law in the United Kingdom. It is a day of shame. It is the day on which Parliament is legislating to remove from people across the UK who were victims of the Troubles access, in accordance with the rule of law and our international legal obligations, to criminal prosecutions, civil actions for damages for loss and injury caused, and to inquests. Moreover, His Majesty’s Government are forcing through not only these restrictions but their immunity clause, despite the fact that, as the Secretary of State said most recently,

“There are no guarantees that the Bill will bring information forward”—[Official Report, Commons, 6/9/23; col. 439.]


at all.

How do your Lordships think the people of Northern Ireland and the other victims of the Troubles across Great Britain felt on hearing those words? At least the current system had been gradually providing verifiable and accurate information for victims, despite the best efforts of those who sought to limit access to information. The Secretary of State said yesterday that, despite the widespread opposition to the legacy Bill from politicians and victims, he has not been presented with an alternative option. This is untrue. The Government have been presented with alternatives during the passage of the Bill which included a fully empowered independent commission that would have investigated in compliance with all our legal obligations. Those alternatives have all been rejected by the Government, who have used their parliamentary majority to force through this iniquitous Bill against the wishes of every political party, community group, victims’ group, human rights organisation, et cetera. Nobody in Northern Ireland and nobody among the GB victims’ groups wants this law.

On this day, His Majesty’s Government are using their parliamentary majority to force through a Bill that is already subject to challenge in the courts. There is now tremendous pressure on the party in opposition to live up to its commitment to repeal the Bill if it wins the next election. Even more, there is huge international pressure on the Irish Government to institute legal proceedings in the European Court of Human Rights in respect of the UK’s failure to comply with its legal obligations under the treaty. I very much hope that they will bring those proceedings.

A country which does not respect the rule of law and its international legal obligations loses its legitimacy in the wider world. In passing this Bill, the United Kingdom is not, as His Majesty’s Government have claimed, seeking to provide truth and reconciliation for the people of Northern Ireland and for all the victims of the Troubles across the United Kingdom. The noble Lord, Lord Bruce, asked a very pertinent question, and I hope the Minister will reply to it. The effect of this Bill is to restrict access to legal remedies, which are enjoyed by everybody else in the United Kingdom, for that small and unfortunate group of victims, several thousand in number, who suffered so terribly during the Troubles. I cannot support this amendment.