Statutory inquiry urged after clerical abuse reports reveal decades of trauma and silence

Content warning: This article discusses child sexual abuse, trauma and suicide.

A fully resourced statutory inquiry should investigate historical clerical child abuse across Northern Ireland after survivors described lifelong trauma, institutional silence and repeated failures to protect children.

Three long-awaited reports published by First Minister Michelle O’Neill and deputy First Minister Emma Little-Pengelly examine the experiences of victims and survivors, records held by churches, schools and public agencies, and current safeguarding practices across the faith sector.

Together, they provide one of the most detailed official examinations yet of abuse in churches, schools and church-run youth organisations that fell outside the remit of the Historical Institutional Abuse Inquiry.

The records research concluded that the proposed next phase should not continue under its original model because ordinary research powers, available funding and existing access arrangements could not deliver a sufficiently robust investigation.

Its central recommendation is a legally empowered statutory inquiry with the time, staff, funding and powers needed to examine evidence held across faith organisations, schools, social services, police, prosecution bodies and archives.

One independent advisory group said victims and survivors of abuse outside residential institutions had “waited long enough” and should be treated equally to those whose experiences were examined by the earlier institutional abuse inquiry.

The publication now places pressure on the Executive to say whether it accepts the call for a statutory inquiry, how its wider response will be funded and when survivors can expect action.

Survivors describe abuse in schools, churches and youth organisations

The oral-history study involved 37 valid interviews with 24 men and 13 women.

Most participants were aged between 51 and 70. Although people from all religions were invited to take part, everyone interviewed came from a Christian background.

Twenty participants reported abuse by clerics in Catholic-run schools, 12 described abuse by clerics in parishes or congregations and five reported abuse by lay people working with children in church youth organisations.

The accounts covered sexual, physical, emotional, psychological and spiritual abuse.

Researchers found that perpetrators could exploit the authority and trust attached to priests, ministers, pastors and other religious figures.

Some were described as charismatic and skilled at making children and their families feel special. Theology, religious rituals and moral teaching were sometimes used to create opportunities for abuse or discourage children from speaking out.

In schools, survivors said physical violence and the historic use of corporal punishment could be used to isolate children, instil fear and disguise abusive behaviour as discipline.

The report found that abuse was frequently a developing process rather than a single event, beginning with grooming and the building of trust before escalating.

Trauma continued for decades

Survivors described depression, suicidal thoughts, addiction, anger, shame, relationship difficulties and career setbacks.

Some reported flashbacks, physical reactions and unexpected triggers many years after the abuse took place.

The report also records how abuse changed personalities, damaged trust in authority and affected intimate and family relationships.

For some, the consequences included losing their religious faith, leaving the church in which they were raised or feeling alienated from religious communities.

Others retained their beliefs and continued attending church while remaining deeply critical of institutional responses to abuse.

The research also contains accounts of resilience, personal growth and survivors using their experiences to protect or support other vulnerable people.

Researchers said the consequences did not stop with the person abused but could spread through families, relationships, congregations and wider communities.

Disclosure often brought further harm

The oral histories found that many participants did not receive the sensitive or supportive response they might reasonably have expected after disclosing abuse.

Some feared their families would be unable to believe that a respected cleric could harm a child.

Others worried that speaking out would bring shame, gossip or conflict within deeply religious families and close-knit communities.

Researchers concluded that, in most cases described in the study, victims and survivors did not receive a satisfactory response from families, faith organisations or the criminal justice system.

The report said survivors could be viewed by churches as a threat to institutional reputation, while the justice system could treat them primarily according to their usefulness as witnesses or sources of evidence.

Participants also described alleged institutional inaction, secrecy and the internal handling of complaints.

One survivor recalled being denied access to a church-commissioned report dealing with experiences they and others had shared.

Another said compensation was not their priority; they wanted an open, genuine apology and action to stop the person involved from continuing in another religious setting.

Historic policing concerns recorded

The oral histories also record concerns about how Northern Ireland’s conflict affected reporting and trust in policing.

Some Catholic participants said going to the police could have been viewed as disloyal to their community, while survivors across denominations raised suspicions that alleged perpetrators may have been protected because of relationships with police or the security apparatus.

These are participant accounts and allegations recorded by the research. The reports do not independently establish that police collusion or criminal wrongdoing occurred.

Some survivors said they wanted those concerns examined through a future inquiry, including questions about why known or suspected offenders were not stopped.

Why researchers say ordinary records work is not enough

The separate records study examined what information may exist across religious organisations, public bodies and schools.

Researchers held discussions with more than 40 stakeholders and received 500 completed survey responses from faith organisations, some covering multiple locations.

They found that relevant material may be fragmented across:

• local congregations;

• diocesan or denominational headquarters;

• schools;

• police and prosecution agencies;

• social services;

• the Public Record Office of Northern Ireland;

• personal, legal and administrative files.

Some religious organisations did not know what allegations might be contained in the records they held, while a significant number of organisations did not respond.

Researchers warned that examining only records already identified through surveys would produce an incomplete and potentially biased picture, weighted towards larger denominations with stronger central systems.

Social services and criminal justice records also contain no simple searchable marker for clerical abuse, meaning extensive manual searches could be required.

The report concluded that even a combination of research methods would fall short without significantly more time, resources and legal authority.

It said an appropriate legal structure must be established before further records work proceeds and identified a statutory inquiry as the most effective route.

Original second-phase budget was around £42,000

The records report states that approximately £42,000 had initially been available for the proposed second phase, with further approval required if more money was needed.

That phase was expected to report by spring 2025.

Researchers ultimately concluded that a credible investigation covering almost nine decades of records across churches, schools, social services and the justice system could not be completed within the time, resources and legal powers originally available.

The recommendation for a statutory inquiry therefore arose not merely from a preference for a larger process, but from the conclusion that the original research model could not produce a sufficiently robust account.

Schools initially omitted from records research

Schools were not included in the original specification for the records study.

Researchers later identified this as a potentially important gap because schools may hold information not duplicated by churches or public bodies.

A separate survey was sent to 1,116 schools and received responses representing 216 schools—a response rate of around 15%. hcca-review-of-records-held.pdf

A third of responding schools did not know whether they held records connected to allegations involving someone from a faith organisation.

Two respondents identified records potentially connected with between two and six schools.

Those respondents estimated that the material concerned at least ten alleged perpetrators and up to 60 alleged victims.

Researchers stressed that the figures came from a limited scoping exercise and could not be treated as either a confirmed total or an estimate of abuse across Northern Ireland’s schools.

Nearly half of responding schools also reported substantial changes to their structure since 1922, including mergers and name changes, which may have affected where records were kept or whether they survived.

The findings raise an immediate question over how potentially relevant records will be preserved while ministers decide what investigative process should follow.

Survivors express differing views on an inquiry

The records researchers formally recommend a statutory inquiry, but the oral-history study shows that survivors do not all hold identical views about how a future process should operate.

More participants whose views were reproduced supported a public inquiry, saying it could expose abuse across denominations, allow others to come forward and establish accountability.

One survivor warned that being drawn into a public arena could retraumatise people who had already lived with the consequences for decades.

The report therefore supports safe, accessible and trauma-informed participation rather than assuming every survivor will want to engage in the same way.

It recommends co-designing future processes with survivors, taking account of meeting locations, timings, accessibility, updates when work is delayed and the personal and financial cost of participation

What justice means to survivors

For participants, justice did not have one single meaning.

It could involve:

• being believed;

• acknowledgement of what happened;

• criminal accountability;

• an honest public apology;

• access to records;

• redress;

• answers about institutional decisions;

• participation in the justice process;

• practical and therapeutic support;

• protecting other children from similar harm.

One survivor described continuing with a six-year criminal justice process not out of a desire for revenge, but because they believed the offender needed to be stopped from harming others.

Researchers recommended greater survivor participation and representation in criminal proceedings, saying victims can otherwise feel excluded from cases arising from their own experiences.

They also called for stronger cooperation between the PSNI and An Garda Síochána because many churches operate on an all-island basis and abuse investigations may cross jurisdictions.

Current safeguarding has improved—but gaps remain

The safeguarding review found substantial progress, particularly among larger organisations with national or regional governance.

These organisations generally had detailed safeguarding policies, dedicated teams, AccessNI vetting, training, risk assessments and established reporting procedures.

However, the report described smaller independent faith organisations operating without external oversight as a “blindspot in the safeguarding landscape”.

There is no comprehensive list of independent churches in Northern Ireland, making some difficult to identify, assess or include in safeguarding research.

The report recommended an official register of faith-based organisations, potentially maintained by the Charity Commission for Northern Ireland or the Department for Communities.

That register should also identify religious organisations working with children through schools, youth clubs, hospitals and other settings.

Researchers also proposed giving a statutory organisation—potentially the Safeguarding Board for Northern Ireland—powers and resources to audit safeguarding, issue guidance and enforce minimum standards.

Faith organisations could be required to report on their safeguarding practices in a similar way to statutory agencies.

Independent safeguarding urged in smaller congregations

The oral-history report contains particular concern about safeguarding being handled entirely within small or closely connected church communities.

Survivors said safeguarding officers should not be relatives or close friends of those in authority and argued that churches should not be permitted to investigate themselves without meaningful independent involvement.

One participant said:

“They need someone independent in charge of their safeguarding. It cannot be within the family.”

Another said:

“Definitely stop them from doing their own safeguarding…everything was done in-house.”

Researchers also recommended that counsellors supporting survivors should not be financially or personally dependent on the congregation involved.

The safeguarding review similarly proposed independent professional panels to make decisions in abuse cases, removing clergy from direct involvement where possible.

Its central principle was clear:

“Child protection must always take precedence over institutional reputation.”

Report calls for examination of patriarchal power

The oral-history study also recommends a rigorous examination of patriarchal power within churches.

It notes that all alleged perpetrators described in the oral histories were men and that those in positions of church authority who made decisions after complaints were also men.

The report says religious interpretations supporting a hierarchy of men over women should form part of that examination.

Researchers also recommended wider public discussion of child sexual abuse to move shame and guilt away from survivors and place responsibility firmly on perpetrators.

Support remains inconsistent

The safeguarding study found that support available to victims and survivors varies considerably among religious organisations.

Some provide national services, independent counselling or designated support workers.

Others rely on referrals to outside organisations, leaving some people without adequate help.

The reports collectively recommend:

• specialist trauma-informed counselling and advocacy;

• survivor-led support groups or healing circles;

• support for affected families and communities;

• independent counsellors;

• greater survivor involvement in justice processes;

• stronger cross-border police cooperation;

• more rigorous vetting;

• rules preventing youth leaders from working alone with children;

• meaningful and accessible survivor involvement in future policy and investigations;

• proper consideration of participants’ time, costs and remuneration.

The safeguarding review notes that survivors of clerical child abuse do not have the same statutory protections or access to dedicated services as those covered by the Historical Institutional Abuse Inquiry. hcca-review-current-safeguarding-policies-practices-within-faith-sector.pdf

Research provides evidence—but not a complete picture

The three reports are extensive, but they do not establish the total prevalence of historical clerical child abuse in Northern Ireland.

The oral-history study was designed to provide depth and lived experience rather than a statistically representative sample.

The records research was a scoping exercise rather than a complete inspection of every relevant file.

The school survey had a response rate of around 15%.

The safeguarding study contacted 1,004 places of worship but obtained 291 valid responses—a 29% response rate.

Five denominations accounted for 97% of that sample, meaning independent churches and some smaller organisations were not well represented.

The safeguarding interview stage involved 24 participants, including only two survivors. It secured no interviews with Health and Social Care Trust representatives or specialist victim-support organisations.

Those limitations do not negate the findings, but they mean the reports cannot determine the total number of victims, alleged perpetrators or incidents.

That evidential gap is itself one of the reasons researchers say a stronger investigative process is needed.

Reports completed before publication

The safeguarding report is dated April 2025, while the survivor experiences and historical records reports are dated June 2025.

The records report states that its initial work was delivered to the commissioning group in January 2025, with the schools section supplied in April 2025.

It was updated on June 24, 2026, to make it suitable for publication to a wider audience.

The Executive Office published the three reports on July 22, 2026.

Ministers promise support and stronger protection

First Minister Michelle O’Neill acknowledged the personal cost to those who participated.

She said:

“We recognise the tremendous courage it has taken for victims and survivors to share their deeply painful experiences of historical clerical child abuse.

“These reports remind us of our duty to listen and to keep the voices of those affected at the heart of our response. We are committed to ensuring that every victim and survivor receives the care, compassion and support they need, and work is already underway to provide counselling and specialist support services.

“Whilst we cannot undo the harm of the past, we will listen, learn and take steps to protect children and prevent abuse in faith settings.”

Deputy First Minister Emma Little-Pengelly said safeguarding had improved but further work was required.

She said:

“The victims and survivors of historical clerical child abuse endured so much and it is vital we listen to their lived experience and do everything we can to ensure what happened in these settings cannot happen again.

“The reports acknowledge the significant improvements in safeguarding arrangements within faith settings. We welcome those improvements; however, we know there is still much more that can be done.

“We are committed to working closely with Executive colleagues, statutory partners, safeguarding bodies, victims and survivors and faith organisations to ensure that our children and young people are protected now and in the future.”

The ministers said work was underway to provide counselling and specialist support, while engagement with survivors would continue through Junior Ministers Aisling Reilly and Joanne Bunting.

Their statement did not confirm whether the Executive accepts the recommendation for a statutory inquiry or set out when formal decisions on the reports’ wider recommendations will be announced.

‘Enough delays’—Executive pressed for action plan

Alliance Executive Office spokesperson Stewart Dickson said publication had been long awaited but criticised the absence of a clear government response.

The East Antrim MLA, who is deputy Chair of the Assembly’s Executive Office Committee, said:

“The publication of these reports has been long awaited by victims and survivors. However, it is deeply frustrating that the Executive Office has failed to release the list of recommendations in response to the findings or provide any meaningful plan.

“Victims and survivors have bravely shared their stories and worked with the Executive Office to shape these recommendations. It is incredibly troubling for them not to see this work made public today.”

He called for a funded and time-bound response setting out how the Executive will address historical abuse and strengthen present-day protection.

Mr Dickson added:

“Victims and survivors have participated at great personal cost, hoping to achieve accountability, justice, and reform.

“Their experiences must always remain at the heart of any efforts to reform the system and improve safeguarding, but every delay in action risks undermining these efforts.

“Enough delays. We need the First Minister and the deputy First Minister to take immediate action and outline a plan to address the findings.

“We cannot let victims and survivors down, and must ensure that what they endured is never repeated.”

‘Please, bloody well, do something about it’

The final pages of the oral-history report return to why survivors agreed to revisit painful experiences.

One participant said:

“What I’m pleading for is, please, bloody well, do something about it.”

Another said they took part “for future generations in the hope that this history cannot, will not, happen again”.

A further participant said simply:

“Speaking with someone like you allows me to know that I am believed…and that my story is worth hearing.”

With the evidence now published, the unanswered question is no longer whether further action has been recommended.

It is whether the Executive will commission the legally empowered investigation researchers say is necessary—and when survivors will see that recommendation translated into a funded, time-bound plan.