Northern Ireland: Legacy of the Past

Paul Kohler Excerpts

Thursday 19th March 2026 Westminster Hall

[Mr Paul Kohler (Wimbledon) (LD)]

It is a pleasure to serve under your chairship, Dame Siobhain. I congratulate the hon. Member for Gower (Tonia Antoniazzi) on securing this debate. I begin by warmly acknowledging the men and women who served during Operation Banner.

Everyone knows—even the Tories, in their more candid moments—that the Conservatives’ legacy Act was a profound mistake, granting immunity to terrorists, creating a shameful moral equivalence between paramilitaries hellbent on breaking the law and our brave veterans who risked, and in many cases lost, their lives upholding the very rule of law that the legacy Act undermined. In the Dillon case, the Northern Ireland Court of Appeal was clear: core provisions of the Act were incompatible with the European convention on human rights. Yes, the new Government abandoned the appeal on that point in the Supreme Court, but with no faith in the position, they were right to do so.

That is why the remedial order mattered. It was a necessary step to bring the UK back within its legal obligations, and to restore a measure of trust for those who have waited decades for truth and accountability. The Conservatives, however, treated the order as a political opportunity, rather than as a moment for sober reflection. To use the plight of our veterans to rage against the ECHR and the Human Rights Act 1998 and to play destructive party politics is something that has not gone unnoticed among the many veterans organisations with whom I have been working—[Interruption.] I will give way.

[Alex Burghart]

I just want to say that the hon. Gentleman is wrong.

[Mr Kohler]

I will now move on to consider the Government’s response to the more salient recommendations made by the Select Committee. Turning first to the treatment of sexual offences, the Government acknowledge that the previous Act created a de facto bar on investigating sexual offences not linked to death or serious injury, but their proposed split model raises concerns. Clause 32 limits investigations to what is deemed necessary for ECHR compliance, which will result in the commission handling some cases while others fall to the police to investigate, creating potential confusion.

On the disclosure of reports, the commission is required to examine all circumstances while also considering specific family questions, but it is unclear how those duties will be balanced or the commission’s findings reported. When I visited the WAVE Trauma Centre, concerns were expressed that, by answering sometimes deeply personal questions, published reports could reveal issues and concerns that victims would not want made public. The chief commissioner, Sir Declan Morgan, has assured me that the commission will act with sensitivity in such circumstances, but victims’ families want something more tangible than that.

That leads directly to the role and powers of the commission. The proposal to grant powers through established statutory procedures rather than enshrining them in the Bill risks opacity and reduced accountability. While a “small number of cases” where current powers fall short are acknowledged, it is far from clear how or if those gaps will be addressed. Alongside the topic of powers sits the question of resources. While the Government’s commitment to a £250 million total funding envelope for legacy mechanisms is welcome, there is widespread agreement that that is not enough. The PSNI chief constable, Jon Boutcher, has given compelling testimony that he has insufficient funding to address his legacy responsibilities. The Government suggest that PSNI funding is a matter for the Northern Ireland Department of Justice and the Executive. However, the costs of legacy, arising as they did under what occurred during direct rule, must surely be borne by the British state, not out of funds provided by the Province’s normal funding formula.

The thorniest issue is, of course, the safeguards afforded to veterans. The Secretary of State has been at pains to stress the centrality of his six protections, but as he acknowledges, in their current form they

“do not go far enough”.

I know he has been in discussion with many veterans’ groups, and I have heard from many of them their gratitude for the time and consideration that he has given them. A date for the Bill Committee has still not been published, which I assume means that discussions within the Northern Ireland Office and the Ministry of Defence are still ongoing. While I have no desire to unduly rush the Secretary of State on this issue, I respectfully remind him that the many veterans’ groups to which he has been talking are anxious to know what extra safeguards will be included in the promised Government amendments to the Bill.

Closely connected to victims’ safeguards is the question of disclosure and national security. A major concern is the Government’s refusal to introduce a merits-based appeal against ministerial denials of disclosure, and the reliance instead on judicial review, which considers procedural correctness rather than the merits of a decision. While the Government cite the primacy of the Executive, that principle does not sit comfortably within a legacy process that is aimed at restoring public trust and transparency. I have consequently tabled an amendment to the Bill that would require any decision to block disclosure on national security grounds to be referred to the Intelligence and Security Committee. That would ensure proper scrutiny and accountability to Parliament.

Our goal is reconciliation. Whenever I ask about reconciliation, I am directed to part 4 of the legacy Act, which is not going to be repealed. Part 4 focuses on oral history and memorialisation. Those have an important role to play, but it is striking how little attention appears to be given to restorative justice in any meaningful sense, because reconciliation cannot be addressed through reports and archives alone. My primary concern is that justice is still being mediated through the narrow lens of lawyers, with criminal or civil actions given too great a prominence in the process. I have personally participated in the restorative justice process, and I know that it begins with the questions that many victims of the troubles are asking: “Why me?” or “Why my loved ones?”

Restorative justice creates a space for answers, acknowledgment, and some form of resolution. The current Bill offers no meaningful avenue for restorative justice, which is why I have tabled amendments to incorporate that formally into the process, ensuring that victims and veterans have a voluntary, structured mechanism with which to engage and seek meaningful reconciliation. Without that, reconciliation risks being misconceived and incomplete.

At its core, this process will command confidence only if victims feel heard, veterans are treated fairly, and the system delivers answers that are credible and transparent. Broad commitments alone are not enough. The Government must address the gaps highlighted by the Northern Ireland Affairs Committee. Without doing so, the process risks failing those who it is intended to serve, undermining trust and leaving decades of questions unanswered.