On Friday, September 19, 2025, the UK and Irish governments unveiled a long-awaited framework aimed at addressing the enduring legacy of the Northern Ireland Troubles, a conflict that spanned decades and left deep scars on communities across the island. The announcement, delivered jointly by Northern Ireland Secretary Hilary Benn and Irish deputy premier Simon Harris, marks a significant shift in how both states propose to handle the unresolved issues stemming from the violence, and signals a new chapter in Anglo-Irish relations.
The new framework comes in direct response to the widespread criticism and legal challenges that followed the 2023 Legacy Act, a piece of legislation introduced by the previous UK Conservative government under then-Prime Minister Boris Johnson. That Act, which halted numerous civil cases and inquests into deaths during the Troubles, was met with fierce opposition from victims' groups and political parties in Northern Ireland. According to the BBC, it also prompted the Irish Government to launch an interstate legal case against the UK, alleging that the Act breached the European Convention on Human Rights (ECHR).
Central to the controversy was the Act’s creation of the Independent Commission for Reconciliation and Information Recovery (ICRIR), a body set up to take over investigations into all outstanding Troubles cases. The Legacy Act also controversially offered conditional immunity from prosecution for British veterans and paramilitary members who cooperated with the commission—a move that many saw as an attempt to draw a line under the past, but which others viewed as a denial of justice for victims’ families. As reported by The Irish Times, this amnesty provision was later disapplied following legal action from bereaved families.
The newly announced framework promises to move away from the amnesty model and instead focuses on a more robust investigative approach. The ICRIR will be fundamentally reformed and rebranded as a Legacy Commission, tasked specifically with investigating deaths related to the Troubles. In addition, a separate body will be established to handle information recovery, reflecting a closer alignment with the principles of the 2014 Stormont House Agreement—a set of proposals that, until now, had never been fully implemented.
Crucially, the new framework contains no proposals for amnesties for suspects. This addresses one of the most contentious elements of the previous legislation and is expected to be welcomed by victims’ groups and those seeking accountability. Both governments have emphasized that the proposals are designed to be compliant with the ECHR and to secure the support of victims and bereaved families—a recognition of the deep wounds that remain, even as the Troubles recede further into history.
According to government sources cited by RTÉ News, the UK has committed to making substantive changes to the Legacy Act, while the Irish government will undertake investigations within its own jurisdiction and cooperate fully with the new Legacy Commission. This bilateral approach will require fresh legislation in both Westminster and the Dáil, underlining the scale of the commitment on both sides.
Consultation has been a key part of the process, with both governments engaging with victims’ groups and families throughout the drafting of the framework. Officials have promised that this dialogue will continue as the details are worked out and the framework moves toward implementation. The hope is that by involving those most affected, the new approach will avoid the pitfalls of previous efforts and build trust among communities still living with the consequences of the conflict.
Armed Forces Minister Al Carns addressed concerns about the implications for veterans, telling the House of Commons on September 18, 2025, "We will ensure that protections are in place to allow us to get to the truth and to ensure that no-one can rewrite history or make veterans suffer any more." His comments reflect a balancing act: providing justice and closure for victims’ families while also safeguarding those who served during the Troubles from what some see as unfair retrospective prosecution.
Irish Taoiseach Mr. Martin, speaking on Thursday, acknowledged that while not every issue has been fully resolved, the new framework represents a major step forward. "One never gets full agreement on all issues but suffice to say that the core issues around immunity, the restoration of civil cases that has happened, but also our concerns in terms of the limits that were there in terms of the original ICRIR review mechanism, that there's now a much stronger investigative dimension to the framework," he said, as reported by The Irish Times. He went on to highlight the Republic’s financial and operational contributions, promising robust cooperation from An Garda Síochána and the Department of Justice.
Mr. Martin’s personal investment in the process was clear. "I've been involved in Northern Ireland all of my political life, this issue has not been resolved. When I say resolved, we don't have a credible pathway to help families who are grieving - we're now into third generations, nephews, nieces and grandsons and granddaughters coming to us looking for closure on many, many cases as a result of the Troubles. That's why I put a lot of work into this with the Tánaiste and we both are of a view that this is an opportunity, with this British government in particular, to bring this to a conclusion."
The Troubles, which raged from the late 1960s until the Good Friday Agreement in 1998, claimed more than 3,500 lives and left thousands more injured. The legacy of those years continues to cast a long shadow, with families still seeking answers and justice for loved ones lost. Many of the civil cases and inquests halted by the 2023 Legacy Act involved unresolved killings, disappearances, and allegations of state collusion. The new framework’s commitment to renewed investigations and information recovery is seen by many as a long-overdue attempt to address these grievances.
Observers note that the framework’s publication also signals a thaw in Anglo-Irish relations, which had been strained by the Legacy Act and Brexit-related disputes. As The Guardian notes, the willingness of both governments to cooperate on such a sensitive issue is a welcome sign for those hoping for continued peace and reconciliation in Northern Ireland.
Still, challenges remain. The new framework must pass through legislative processes in both London and Dublin, and its success will depend on the continued engagement of victims, families, and political leaders from all communities. There are also questions about resources, timelines, and the ability of the new Legacy Commission to deliver the answers so many have sought for so long. Yet, for the first time in years, there is cautious optimism that a credible pathway to closure may finally be within reach.
With both governments now publicly committed to a more transparent and victim-centered approach, the next steps will be closely watched by all those whose lives have been shaped by the Troubles. The hope, as expressed by leaders on both sides, is that this new framework will help heal old wounds and build a more just future for Northern Ireland.
