https://www.assemblyresearchmatters.org/2025/11/24/inquiry-mother-and-baby-institutions-magdalene-laundries-and-workhouses-and-redress-scheme-bill-a-brief-overview/?fbclid=IwY2xjawPm2zZleHRuA2FlbQIxMQBzcnRjBmFwcF9pZBAyMjIwMzkxNzg4MjAwODkyAAEepOClfiBYMmulGT9e6LKabNmy93MkvEnfHR5R_ybT1Sey5k4jv0eEuV-BBvM_aem_momuJNYfswSI7WpBy8iD0QInquiry (Mother and Baby Institutions, Magdalene Laundries and Workhouses) and Redress Scheme Bill: A brief overview
November 24, 2025
Author icon Thomas Lough
The Inquiry (Mother and Baby Institutions, Magdalene Laundries and Workhouses) and Redress Scheme Bill ('the Bill') is currently being considered by the Assembly. This blog article provides a brief outline of some of the main provisions contained in the Bill and what the next steps are in the process.
For more information on the contents of the Bill, you may wish to read the dedicated RaISe Bill Paper, as well as a separate RaISe paper on the Review of the Bill Costs. The Bill itself (as introduced) and the Explanatory and Financial Memorandum (EFM), are both published on the Assembly website.
What would the Bill do?
The Bill was introduced by The Executive Office (TEO) on 16 June 2025. The Bill implements key recommendations of the Truth Recovery Design Panel (TRDP) and subsequent Truth Recovery Programme by establishing:
a statutory Public Inquiry into the operation of Mother and Baby Institutions, Magdalene Laundries and Workhouses in Northern Ireland between 1922 and 1995; and
a statutory Redress Scheme to provide financial redress to victims and survivors and their families.
The Bill responds to concerns and evidence presented regarding the treatment within these institutions, including allegations of unlawful deaths, forced labour, arbitrary detention, family separation, and other human rights violations. It also follows ongoing campaigning by victims and survivors and aligns with developments in neighbouring jurisdictions where inquiries and redress schemes have already been established: for example, the Republic of Ireland's Commission of Investigation into Mother and Baby Homes and the subsequent Mother and Baby Institutions Payment Scheme.
Further information in relation to State responses to historical abuse can be found in related RaISe papers:
A statutory Public Inquiry
Part 1 of the Bill allows for the establishment of a Truth Recovery Public Inquiry ('the Inquiry'). This Inquiry would identify systemic failings of certain institutions and public bodies between 1922 and 1995, including their treatment of "relevant persons" (see definition below). The Inquiry would not examine matters already examined by the Historical Institutional Abuse (HIA) Inquiry. While the Inquiry could consider ongoing effects on individuals after 1995, such as ongoing trauma and psychological impacts, it cannot extend the timeframe itself. The exact Terms of Reference for the Inquiry are not contained in the legislation and would instead be prepared by TEO.
What will the Inquiry examine?
The Inquiry would examine 'prescribed institutions'. Clause 3 of the Bill explains that these are:
institutions known as 'mother and baby institutions';
institutions known as 'Magdalene Laundries';
workhouses (within the meaning of the Poor Relief Acts (Northern Ireland) 1838 to 1937), and;
other institutions (irrespective of whether such institutions are public bodies or not, and whether the activities of such institutions are carried on for, or not for, profit).
These 'other' institutions may be identified in the process of the Inquiry. In order for them to be examined by the Inquiry, they must be provided for in regulations made by TEO. These must be approved by the Assembly before an institution becomes 'prescribed'.
The Bill also provides a definition of 'relevant persons'. In relation to a prescribed mother and baby institution or Magdalene Laundry these are any person admitted to the institution and any person born while their mother was under the care of the institution either at the time or immediately before their birth.
In relation to prescribed workhouses, 'relevant persons' are defined as a pregnant woman or pregnant girl admitted to the workhouse; a woman or girl who had given birth while she was under the care of the workhouse; and a person born while their mother was under the care of the workhouse either at the time or immediately before their birth.
If 'other institutions' are added by TEO through regulations, 'relevant persons' in relation to that institution can also be added through regulations. Again, these would require the approval of the Assembly.
The EFM makes clear that in this context, the term 'under the care of' is used as a broad term only and encompasses all types of care without a value judgement on the quality of the 'care' given. The Inquiry will investigate the standard of the care that was provided to those relevant persons.
Who will be on the Inquiry panel?
The Inquiry is designed to be inquisitorial rather than adversarial, with no cross examination. It is more of a fact-finding exercise rather than a court case. The Inquiry panel would be appointed by the First Minister and deputy First Minister and must consist of at least one person (the Chair). The Bill otherwise does not legislate for a specific number of Inquiry panel members.
As well as the Inquiry panel, the Bill (at clause 10) allows for an advisory panel that can include victims and survivors, their relatives and those providing support to victims and survivors. Under the Bill, as introduced, this advisory panel would not be mandatory and would be at the discretion of the Inquiry Chair who may appoint such a panel.
The Bill also provides for a number of other areas in relation to the Inquiry. These include powers to require the production of evidence and the payment of expenses to witnesses and others. For further detail on these, please see the RaISe Bill Paper.
A statutory Redress Scheme
Part 2 of the Bill relates to the payment of redress. It is important to note that redress can come in a number of forms, for example: state or institutional apologies (be they private or public), financial payment or memorialisation and these will all have differing levels of importance for individual victims and survivors. TEO have made clear that financial redress in this respect will consist of two parts: a Standardised Payment (SP) and Individually Assessed Payment (IAP). The Bill, as introduced, only makes provision for the SP. The SP is residency-based and set at a standard payment amount. IAP would be harm-based where the payments would relate to the harm caused to each specific individual. TEO have confirmed that it intends to bring forward legislation to introduce this following the Public Inquiry.
The Bill would allow the SP Scheme to accept applications for three years with a potential extension of a further two years. Each application under the Scheme will be decided either by a judicial member of the Redress Service or by a panel. This panel must include at least one judicial member.
How much would a redress payment be and who would be eligible?
Victims and survivors must fulfil several eligibility criteria in order to receive a redress payment. These criteria are set out in the Bill, with the requirement to have attended at least one of the listed institutions (11 mother and baby institutions and Magdalene Laundries) during a time period specified. These are set out in Schedule 2 of the Bill. To be eligible a victim/survivor must have:
been admitted to a 'relevant institution' within the 'relevant timescale', or;
have been born to a mother who was in a 'relevant institution' within the 'relevant timescale', or;
have been born to a mother who was in a 'relevant institution' within the 'relevant timescale' immediately before their birth.
If a victim/survivor is eligible for this payment they would, under the Bill, receive a single £10,000 payment. A victim/survivor would not be eligible under the Bill if their admittance to an institution was paid for privately.
The Bill would also allow for posthumous payments to be made. This is where a person, who would otherwise have been eligible for a £10,000 payment, was alive on or after 29 September 2011 but has since died. In this case, any person who is either a partner or child of the deceased can each apply for a posthumous payment of £2000.
What are the costs of the Inquiry and SP Redress Scheme?
The EFM, which was published alongside the Bill states that the potential costs of the specified Inquiry would be in the region of £12 million to £20 million, but likely to be around £14 million, assuming the Bill is enacted as introduced. For the financial redress covered by the Bill, TEO have estimated a cost of £58 million.
Given the nature of both the Inquiry and Redress Scheme, it is not possible to know the exact cost ahead of time. There are several issues which may impact the cost. For example, the scope of the Inquiry as laid out in Terms of Reference which are yet to be finalised, how many people are involved in the Inquiry, and how long it lasts. The Redress Scheme costs will be impacted by, for example, the number of applications, the length of time it is open for, and any additional institutions that are added to the 'relevant institutions' list.
In addition to this, any amendments (proposals for change) made to the Bill as it progresses through the Assembly could change not only the policy in the Bill but may have cost implications as well. For example, if there was to be a different amount of redress paid to victims and survivors than the £10,000 currently in the Bill.
For a detailed analysis on the potential costs arising from the Bill, you may wish to look at the RaISe paper on the Review of the Bill Costs.
What happens next?
The Bill is currently at Committee Stage. This stage involves detailed consideration of the Bill by the appropriate Statutory Committee. In this case, this is the Committee for The Executive Office. Committee Stage began on 25 June 2025 and will last, at most, until 26 January 2026.
The Committee has been taking evidence from interested bodies (including the Executive Office) and individuals. Committee members are now considering the evidence provided and will then scrutinise each clause and schedule of the Bill and discuss possible amendments to it. Committees have no power to amend a Bill, but they prepare a report for the Assembly, including any proposals for amendments to the Bill.
You can find further information on the Committee's work on the Bill and keep up to date via the dedicated Assembly webpage.
You can also find out more about the stages of a Bill on the Assembly's website where there is more information on how laws are made.
