Northern Ireland: Legacy of the Past

Fleur Anderson Excerpts

Thursday 19th March 2026 Westminster Hall

[Fleur Anderson (Putney) (Lab)]

It is a pleasure to serve under your chairship, Dame Siobhain; I wish you a happy St Patrick’s day. I thank the Chair of the Northern Ireland Affairs Committee, my hon. Friend the Member for Gower (Tonia Antoniazzi), for securing this debate and choosing this topic, and I commend her and the Committee for their solid work. Their useful report brings together many different aspects of the Government’s work on this issue, and gave a platform to so many victims, organisations and voices that are often not heard in this place to talk about the impact it has on them, what they think about the current work and what they hope for in future.

This Friday is the anniversary of the 1993 Warrington bombing, when Tim Parry and Johnathan Ball—two children—were killed and 54 people were injured. Not a week goes by, in Northern Ireland and elsewhere, when we do not remember the victims. They are the people we should have in our minds when we talk about the troubles, and about legacy and reconciliation. Secretary of States do not often come to Westminster Hall, so I welcome the presence of the Secretary of State, who I know has taken a personal interest in righting the wrongs of the previous Government’s legislation, and in what that can do for society in Northern Ireland, both now and for future generations.

It is important to remember what this is fundamentally about; I could see that it was on the minds of all Committee members throughout the inquiry. More than 3,500 people, across Northern Ireland and in towns, cities and military barracks across England, died in the troubles. They included nearly 2,000 civilians and more than 1,100 members of our security forces. Nearly a third of those deaths remain unsolved, and a great many victims and families, some of whom I had the privilege of meeting when I was a Minister, are still seeking answers. Their questions remain with me. I will never forget sitting in the WAVE Trauma Centre in Belfast and talking to victims, who, so many years later, have so many questions and just want to know what happened to their loved ones.

[Alex Ballinger (Halesowen) (Lab)]

My hon. Friend is delivering an excellent speech. Does she recognise the fact that there are also 200 service families among those victims who are seeking answers, and that the Bill will help to address that issue at the same time?

[Fleur Anderson]

I absolutely agree, and my hon. Friend makes a very good point: this also includes service families. No matter what family someone comes from, it is a huge loss. These are people missing from family tables, about whom there are still questions, and it is a trauma not to know what happened—that is what this legacy legislation aims to resolve. We are so many years on, and there is so much investigating yet to do. I understand that many people simply want to know how their loved ones died.

The ICRIR is taking forward 100 investigations, some of which Peter Sheridan listed in his evidence to the Committee. Those include the deaths of Alexander Millar in 1975; Seamus Bradley, a 19-year-old; Rory O’Kelly in 1977; Kathleen O’Hagan in August 1994, who was seven months’ pregnant, and her baby also died in that attack; James and Ellen Sefton in 1990; and Judge Rory Conaghan in 1974. Those are just some of the people who died—their families have questions, and they are being investigated by the ICRIR.

The commission’s caseload also includes the 1974 Guildford pub bombings, the 1974 M62 coach bombing, the 1976 Kingsmill massacre, and the 1979 Warrenpoint massacre, which was the deadliest attack on British forces during the troubles. We must ensure that those investigations can progress and deliver answers for families, and that all communities can have confidence in the commission, as trust was also a key element of the evidence given in the report.

The last Government’s legacy Act had no support in Northern Ireland, and it is clear why that was the case. It shut down the right of individuals to pursue a civil case, whether against the state or perpetrators of terrorism. It cruelly stopped a number of inquests midway through, and it ended over 1,000 police investigations in Northern Ireland and England, including those into the deaths of more than 200 UK service personnel, as my hon. Friend the Member for Halesowen (Alex Ballinger) highlighted.

The Act was also widely opposed in Northern Ireland by political parties and victims and families. In November 2025, Sandra Peake—the chief executive of the WAVE Trauma Centre—wrote to all MPs, and she also gave very powerful evidence to the Committee for the report. In her letter to MPs, Sandra said:

“The then Government wanted to draw a veil over the past but there isn’t a veil thick enough to hide the blood and bones of murdered loved ones or to muffle the cries of their families.”

The arbitrary ending of troubles-related inquests, and closing the civil action route to justice, confirmed the belief that the interests of victims were not only not on the agenda, but had not even made it into “Any other business”.

[Leigh Ingham]

I, too, met victims at the WAVE centre when I was on the Northern Ireland Affairs Committee. When I read the letter that my hon. Friend just mentioned, this comment really resonated with me:

“Whatever the then Government’s intention, the result would have been that terrorists who carried out the most egregious crimes imaginable would be able to walk free if they told their story”.

They felt like that was too much, so does my hon. Friend agree that the Government are right to address this issue for victims who have come forward?

[Fleur Anderson]

I absolutely agree; it was just too much even to ask or encourage more people to come forward—if they did come forward, there would be no justice. The families of victims often see those people in their local supermarket; they are living in their communities, but the families know that there is no hope of them ever having justice. That is too painful to contemplate.

Like the report, I welcome the fact that the Government have taken a very different approach. I know that the Secretary of State engaged widely on the drafting of the Bill with victims’ groups, families, veterans and other affected parties, and I was pleased to play a part in those discussions. The troubles Bill will restore civil cases and enable the resumption of halted inquests. It will mean that legacy cases are dealt with sensitively and efficiently through a reformed legacy commission, with the fullest possible disclosure of information to families. Rather than making false promises to our veterans, as the legacy Act did, the Bill will put in place six genuine protections for any veteran who is asked to give information, and nobody who carried out acts of terrorism will be given immunity.

We should be clear that it was terrorists—the IRA, the Ulster Volunteer Force, the Irish National Liberation Army and the Ulster Defence Association—who were responsible for the vast majority of deaths during the troubles. It is right that where there is evidence of criminality by anyone, those responsible should be held to account. Frankly, it is shocking that many Opposition Members disagree and would prefer to grant immunity to those who carried out the most heinous acts of terrorism on UK soil.

The Government agreed information-sharing commitments with the Irish authorities under the joint framework announced in September. I welcome the fact that the Select Committee visited Ireland before and during the compilation of the report. The agreement is unprecedented and could be hugely significant in enabling answers to be found for families once the new legacy commission is established.

I am glad that the report highlights the powers of the Secretary of State, the definition of a family member, and the need to listen to victims, listen again and keep listening. These are people who have lost trust in the system. Slowly but surely—through the Government’s actions and the actions of organisations such as the South East Fermanagh Foundation, WAVE and so many others working in mental health across Northern Ireland—the trust of families has been built up. But they will need to see good outcomes.

I welcome the increased funding for the commission and the PSNI, and the reiteration of the need for speed in this work. As has been pointed out many times, many of the family members are now elderly. They are seeing out the end of their days and just want the answers they seek in time.

[Mike Kane (Wythenshawe and Sale East) (Lab)]

My hon. Friend is making a powerful speech, and she was an excellent Minister in her own right. Will she join me in paying tribute to Councillor Tommy Judge, who has been the Labour councillor for Sharston ward in my constituency for many years, and who was a victim of the 1974 bus bomb? He is standing down after many years of public service, but he will carry that with him, in his retirement, to the end.

[Fleur Anderson]

I thank my hon. Friend for mentioning Tommy Judge, the work he has done and all that he has lived with throughout his life. My hon. Friend and I have met many other people across England who are working to support victims and survivors in Great Britain, as well as in Northern Ireland.

The report ends on a cliffhanger. It ends by talking about wider reconciliation, which is very important, because the legacy legislation is just part of a piece of wider work that needs to be done that is important for reconciliation. When I have been to Northern Ireland, I have asked many times: “What is reconciliation? What does it mean? What will be the outcome? What will it look like?” It means different things to different people. Some people do not want reconciliation; for some people, reconciliation means answers; for some people, it means the ability to live together in a community peacefully; and for some people, it means good jobs, education and opportunities, and hope for the future.

With the world watching the peace process in Northern Ireland, this work could not be more important. It is a beacon of hope for people in other conflicts around the world, who look to Northern Ireland and say, “It has been possible in Northern Ireland,” and who look to the ways in which we continue to build that peace, bit by bit. It is hard, and we are seeing how hard it is, but the ultimate aim must be for communities to be able to live and thrive peacefully together, and to reduce the generational trauma—to reduce the amount that is passed down to future generations.

I hope that future Select Committee reports will look at other aspects of reconciliation, including integrated education, which is an absolutely necessary part of bringing together communities, especially young for people. Just living and working together in a school all the time is so important, as has been reiterated to me so many times by parents and peacemakers in Northern Ireland. I am sure the Committee will consider that aspect too.

Having made that recommendation for future reports, I congratulate the Committee on the report we are debating, on the work the Committee has done, and on how influential I am sure the report will be on the work done not only by the Government but by many organisations and people across Northern Ireland.

--- Later in debate ---

[Alex Burghart (Brentwood and Ongar) (Con)]

I thank the Northern Ireland Affairs Committee for its work. The Committee is always incredibly thoughtful and diligent in the prosecution of its duties, and the report has been very interesting. I will try to resist the opportunity to re-litigate the whole troubles Bill and the argument around the legacy Act in the next 10 minutes, rather than focus on the report. However, it is important that hon. Members remember how the legacy Act came to be, and how the previous Labour Government treated the whole issue of the peace process.

The idea of immunity was good enough for the Labour Government in 1998—indeed, it was fundamental to the legislation that fell within the peace process. I think of the two-year limit on sentences that my right hon. Friend the Member for New Forest East (Sir Julian Lewis) referred to, but also of the legislation regarding bodies that had been buried, and about the destruction of weapons where forensic evidence was destroyed. Those were all forms of immunity, and it is why—this is the point raised by the hon. Member for South Antrim (Robin Swann)—an appeal to the Supreme Court could easily have been successful. Very experienced legal advice shows that that would have been the case, so it was wrong of the Government to drop it.

The Government have decided that they are opposed to immunity, but they were not opposed to immunity in 1998. They were not opposed to immunity in 2005, when Peter Hain brought forward a Bill that would have given immunity only to former terrorists. Only under enormous pressure from the House, which decided that it would have to introduce immunity for soldiers as well, was that measure dropped under pressure from Sinn Féin. The Labour party has a very selective memory on those issues.

[Fleur Anderson]

In 1998 immunity was in the Good Friday agreement, and the whole population got to vote on that, and on whether or not they agreed with that immunity—it was very controversial. There was no vote on whether the population agreed with immunity in the legacy Act. In fact, all the democratically elected parties lined up to oppose that immunity.

[Alex Burghart]

It applied to only one side, and over time that one-sidedness became apparent to lots of people, including veterans. That is why it was important. In 2005, there was no democratic mandate for what the Labour Government tried to do to give immunity to terrorists. What we are trying to do, and what we tried to do in our legacy Act, is rebalance the argument, and in so doing bring about the sort of process that my right hon. Friend the Member for New Forest East spoke so powerfully about. The adversarial system will not bring about proper truth and reconciliation, and it will not encourage people to come forward with new information. Instead, it will reopen old wounds and allow for the continuation of the troubles by other means. For that very important reason of principle, we cannot support the legislation.

To return to the report issued by the Northern Ireland Affairs Committee, I will quickly pick up on four areas. On the consideration of the ICRIR, I pay tribute to Sir Declan Morgan, who has been an excellent head. Every time that I have heard people question the ICRIR’s independence, I have felt the need to come to Sir Declan’s defence. Anyone who has met him and seen his work will know that he is thoroughly independent, and woe betide any politician who tried to lean on him.

The argument that the ICRIR has struggled to build the trust and authority needed to operate effectively is already outdated. As of 30 November 2025, 231 requesting individuals had approached the commission, 245 cases were recorded, and 110 investigations had been opened into a total of 188 deaths and five cases of serious harm. Those numbers were growing every month. Indeed, the more time that the ICRIR was given, the more public trust it gained and the more its work was flourishing. Now, just as it is getting going, it is going to be cut off at the knees. I was pleased that the report mentioned the Northern Ireland Court of Appeal finding in 2024, which said,

“we find that these arrangements do not of themselves offend the principle of independence given the fact that ICRIR is ultimately made up and staffed by independent investigators and decision makers including the commissioners.”

I would much rather that the ICRIR was being given time.

It is clear that there are no explicit or particular protections for veterans in the Government’s legislation, and I was pleased that the Committee said that the Government were overselling that claim—indeed they are. No armed forces bodies believe that these protections are sufficient. Contrary to what the hon. Member for Wimbledon (Mr Kohler) said, many veterans’ groups are concerned that the Government are moving away from the policies established by the Conservative party in power.

On the subject of Ireland, there were very powerful contributions from the hon. Members for South Antrim and for Strangford (Jim Shannon). We all want this element of the Government’s arrangements to work, but we must remain sceptical, not least because of the Republic’s long-standing failure to produce the goods in this area. As the Northern Ireland Affairs Committee outlined on page 85 of its report, equivalent legislation structures are not expected. The hon. Member for Gower (Tonia Antoniazzi) used a wonderful phrase, stating that there is a lack of “practical outworkings” in this area, and indeed there is. With all due respect to the Secretary of State, it was a dreadful missed opportunity that the framework did not include a commitment from the Republic to start its own Omagh inquiry. That was the most wicked attack of the whole troubles, and it is shameful that there are only investigations into what the British state could have done to prevent it, rather than investigations into the people who committed that dreadful atrocity.

I was pleased that the Committee referred to costs, as did several other hon. Members. The PSNI estimates that it will need an extra £1 billion over the next 10 years to cope with the new caseload. The legacy commission is seriously underfunded for the additional caseload that it will acquire as it transitions from being the ICRIR. Without that money, there will be a huge backlog in the caseload of the legacy commission, and there will also be a reduction in frontline policing in Northern Ireland. That is unacceptable. We strongly disagree with what the Government are doing, but if they are going to do it, they must make the money available to ensure that public services and institutions in Northern Ireland function properly. Finally, I ask the Secretary of State one quick question: when will we see the Bill again?