§ 1. The Conference between the British and Irish Governments and the parties involved in the Northern Ireland Executive (designate) met at Sunningdale on 6, 7, 8 and 9 December, 1973.
§ 2. During the Conference, each delegation stated their position on the status of Northern Ireland.
§ 3. The Taoiseach said that the basic principle of the Conference was that the participants had tried to see what measure of agreement of benefit to all the people concerned could be secured. In doing so, all had reached accommodation with one another on practical arrangements. But none had compromised, and none had asked others to compromise, in relation to basic aspirations. The people of the Republic, together with a minority in Northern Ireland as represented by the S.D.L.P. delegation, continued to uphold the aspiration towards a united Ireland. The only unity they wanted to see was a unity established by consent.
§ 4. Mr. Brian Faulkner said that delegates from Northern Ireland came to the Conference as representatives of apparently incompatible sets of political aspirations who had found it possible to reach agreement to join together 888 in government because each accepted that in doing so they were not sacrificing principles or aspirations. The desire of the majority of the people of Northern Ireland to remain part of the United Kingdom, as represented by the Unionist and Alliance delegations, remained firm.
|5. The Irish Government fully accepted and solemnly declared that there could be no change in the status of Northern Ireland until a majority of the people of Northern Ireland desired a change in that status.||The British Government solemnly declared that it was, and would remain, their policy to support the wishes of the majority of the people of Northern Ireland. The present status of Northern Ireland is that it is part of the United Kingdom. If in the future the majority of the people of Northern Ireland should indicate a wish to become part of a united Ireland, the British Government would support that wish.|
§ 6. The Conference agreed that a formal agreement incorporating the declarations of the British and Irish Governments would be signed at the formal stage of the Conference and registered at the United Nations.
§ 7. The Conference agreed that a Council of Ireland would be set up. It would be confined to representatives of the two parts of Ireland, with appropriate safeguards for the British Government's financial and other interests. It would comprise a Council of Ministers with executive and harmonising functions and a consultative role, and a Consultative Assembly with advisory and review functions. The Council of Ministers would act by unanimity, and would comprise a core of seven members of the Irish Government and an equal number of members of the Northern Ireland Executive with provision for the participation of other non-voting members of the Irish Government and the Northern Ireland) Executive or Administration when matters within their departmental competence were discussed. The Council of Ministers would control the functions of the Council. The Chairmanship would rotate on an agreed basis between representatives of the Irish Government and of the Northern Ireland Executive. Arrangements would be made for the location of the first meeting, and the location of subsequent meetings would be determined by the Council of Ministers. The Consultative Assembly would consist of 60 members, 30 members from Dail Eireann chosen by the Dail on the basis of proportional representation by the single transferable vote, and 30 members from the Northern Ireland Assembly chosen by that Assembly and also on that basis. The members of the Consultative Assembly would be paid allowances. There would be a Secretariat to the Council, which would be kept as small as might be commensurate with efficiency in the operation of the Council. The Secretariat would service the institutions on the Council and would, under the Council 889 of Ministers, supervise the carrying out of the executive and harmonising functions and the consultative role of the Council. The Secretariat would be headed by a Secretary-General. Following the appointment of a Northern Ireland Executive, the Irish Government and the Northern Ireland Executive would nominate their representatives to a Council of Ministers. The Council of Ministers would then appoint a Secretary-General and decide upon the location of its permanent headquarters. The Secretary-General would be directed to proceed with the drawing up of plans for such headquarters. The Council of Ministers would also make arrangements for the recruitment of the staff of the Secretariat in a manner and on conditions which would, as far as is practicable, be consistent with those applying to public servants in the two administrations.
§ 8. In the context of its harmonising functions and consultative role, the Council of Ireland would undertake important work relating, for instance, to the impact of EEC membership. As for executive functions, the first step would be to define and agree these in detail. The Conference therefore decided that, in view of the administrative complexities involved, studies would at once be set in hand to identify and, prior to the formal stage of the conference, report on areas of common interest in relation to which a Council of Ireland would take executive decisions, and, in appropriate cases, be responsible for carrying those decisions into effect. In carrying out these studies, and also in determining what should be done by the Council in terms of harmonisation, the objectives to be borne in mind would include the following:
- (1) to achieve the best utilisation of scarce skills, expertise and resources;
- (2) to avoid, in the interests of economy and efficiency, unnecessary duplication of effort; and
- (3) to ensure complementary rather than competitive effort where this is to the advantage of agriculture, commerce and industry.
§ In particular, these studies would be directed to identifying, for the purposes of executive action by the Council of Ireland, suitable aspects of activities in the following broad fields.
- (a) exploitation, conservation and develop-of natural resources and the environment;
- (b) agricultural matters (including agricultural research, animal health and operational aspects of the Common Agriculture Policy), forestry and fisheries;
- (c) co-operative ventures in the fields of trade and industry;
- (d) electricity generation;
- (e) tourism;
- (f) roads and transport;
- (g) advisory services in the field of public health;
- (h) sport, culture and the arts.
§ It would be for the Oireachtas and the Northern Ireland Assembly to legislate from 890 time to time as to the extent of functions to be devolved to the Council of Ireland. Where necessary, the British Government will co-operate in this devolution of functions. Initially, the functions to be vested would be those identified in accordance with the procedures set out above and decided, at the formal stage of the Conference, to be transferred.
§ 9. (i) During the initial period following the establishment of the Council, the revenue of the Council would be provided by means of grants from the two administrations in Ireland towards agreed projects and budgets, according to the nature of the service involved.
- (ii) It was also agreed that further studies would be put in hand forthwith and completed as soon as possible of methods of financing the Council after the initial period which would be consonant with the responsibilities and functions assigned to it.
- (iii) It was agreed that the cost of the Secretariat of the Council of Ireland would be shared equally, and other services would be financed broadly in proportion to where expenditure or benefit accrues.
- (iv) The amount of money required to finance the Council's activities will depend upon the functions assigned to it from time to time.
- (v) While Britain continues to pay subsidies to Northern Ireland, such payments would not involve Britain participating in the Council, it being accepted nevertheless that it would be legitimate for Britain to safeguard in an appropriate way her financial involvement in Northern Ireland.
§ 10. It was agreed by all parties that persons committing crimes of violence, however motivated, in any part of Ireland should be brought to trial irrespective of the part of Ireland in which they are located. The concern which large sections of the people of Northern Ireland felt about this problem was in particular forcefully expressed by the representatives of the Unionist and Alliance parties. The representatives of the Irish Government stated that they understood and fully shared this concern. Different ways of solving this problem were discussed; among them were the amendment of legislation operating in the two jurisdictions on extradition, the creation of a common law enforcement area in which an all-Ireland court would have jurisdiction, and the extension of the jurisdiction of domestic courts so as to enable them to try offences committed outside the jurisdiction. It was agreed that problems of considerable legal complexity were involved, and that the British and Irish Governments would jointly set up a commission to consider all the proposals put forward at the Conference and to recommend as a matter of extreme urgency the most effective means of dealing with those who commit these crimes. The Irish Government undertook to take immediate and effective legal steps so that persons coming within their jurisdiction and accused of murder, however motivated, committed in Northern Ireland will be brought to trial, and it was agreed that any similar reciprocal action that may be needed in Northern Ireland be taken by the appropriate authorities.891
§ 11. It was agreed that the Council would be invited to consider in what way the principles of the European Convention on Human Rights and Fundamental Freedoms would be expressed in domestic legislation in each part of Ireland. It would recommend whether further legislation or the creation of other institutions, administrative or judicial, is required in either part or embracing the whole island to provide additional protection in the field of human rights. Such recommendations could include the functions of an Ombudsman or Commissioner for Complaints, or other arrangements of a similar nature which the Council of Ireland might think appropriate.
§ 12. The Conference also discussed the question of policing and the need to ensure public support for and identification with the police service throughout the whole community. It was agreed that no single set of proposals would achieve these aims overnight, and that time would be necessary. The Conference expressed the hope that the wide range of agreement that had been reached, and the consequent formation of a power-sharing Executive, would make a major contribution to the creation of an atmosphere throughout the community where there would be widespread support for and identification with all the institutions of Northern Ireland.
§ 13. It was broadly accepted that the two parts of Ireland are to a considerable extent interdependent in the whole field of law and order, and that the problems of political violence and identification with the police service cannot be solved without taking account of that fact.
§ 14. Accordingly, the British Government stated that, as soon as the security problems were resolved and the new institutions were seen to be working effectively, they would wish to discuss the devolution of responsibility for normal policing and how this might be achieved with the Northern Ireland Executive and the Police.
§ 15. With a view to improving policing throughout the island and developing community identification with and support for the police services, the governments concerned will co-operate under the auspices of a Council of Ireland through their respective police authorities. To this end, the Irish Government would set up a Police Authority, appointments to which would be made after consultation with the Council of Ministers of the Council of Ireland. In the case of the Northern Ireland Police Authority, appointments would be made after consultation with the Northern Ireland Executive, which would consult with the Council of Ministers of the Council of Ireland. When the two Police Authorities are constituted, they will make their own arrangements to achieve the objectives set out above.
§ 16. An independent complaints procedure for dealing with complaints against the police will be set up.
§ 17. The Secretary of State for Northern Ireland will set up an all-party committee from the Assembly to examine how best to introduce effective policing throughout Northern Ireland with particular reference to the need to achieve public identification with the police.892
§ 18. The Conference took note of a reaffirmation by the British Government of their firm commitment to bring detention to an end in Northern Ireland for all sections of the community as soon as the security situation permits, and noted also that the Secretary of State for Northern Ireland hopes to be able to bring into use his statutory powers of selective release in time for a number of detainees to be released before Christmas.
§ 19. The British Government stated that, in the light of the decisions reached at the Conference, they would now seek the authority of Parliament to devolve full powers to the Northern Ireland Executive and Northern Ireland Assembly as soon as possible. The formal appointment of the Northern Ireland Executive would then be made.
§ 20. The Conference agreed that a formal conference would be held early in the New Year at which the British and Irish Governments and the Northern Ireland Executive would meet together to consider reports on the studies which have been commissioned and to sign the agreement reached.
§ LORD SHACKLETON
My Lords, I am sure that the whole House unreservedly welcomes the Communiqué and the agreement which has been achieved, which is very remarkable in all the circumstances. It reflects the greatest credit on everybody, including members of Her Majesty's Government who took part in this Conference and those both from the Republic and from Northern Ireland. With 37 speakers to-day, it would be wrong if I were to start asking detailed questions. There are, obviously, a number of very difficult questions which have been raised in the Communiqué on which one would wish to know how Her Majesty's Government see matters working out. But I think we shall have an opportunity to deal with them (perhaps the noble Lord can tell us) probably on Tuesday of next week when both the Act and the Bill to amend the Constitution in relation to the size of the Executive, and the devolution Order, will come forward. Perhaps the noble Lord can say something as to whether legislation will be necessary in regard to the common law enforcement area, which is a complex and difficult matter. If so, this would be helpful. But, beyond that, all I can say is that I am sure everybody in this country, and the overwhelming majority of people in Ireland, North and South, now hope that both the subversive elements and the extremist Protestants will not wreck the best chance in centuries of peace for Northern Ireland.
§ LORD AMULREE
My Lords, I would briefly associate noble Lords on these Benches very warmly with the words of the noble Lord the Leader of the Opposition. It is no time for making long speeches or for asking questions. I merely hope, like him, that the people in Ireland will be able to take this chance, which is the best chance that has arisen in front of them for a very long time.
§ LORD WINDLESHAM
My Lords, I thank both noble Lords for their very generous comments. I will be as brief in my reply as they were in their comments, in view of the very long list of speakers we have for the two debates to-day. I can say to the noble Lord the Leader of the Opposition that we shall have an opportunity to discuss Northern Ireland on Tuesday week, December 18, when we shall have three Orders before us implementing the provisions of the Northern Ireland (Constitution) Act. Noble Lords will remember that these are needed to devolve powers to the Northern Ireland Executive. Also, there will be one amending Bill, amending the Northern Ireland (Constitution) Act in one respect: that is, the size of the Executive.
§ THE EARL OF LONGFORD
My Lords, will the noble Lord allow one who has been concerned with this issue for so many years to add to what has been so finely said by the noble Lord the Leader of the Opposition, and express heartfelt tribute to all concerned?