Commission of Investigation into the Handling of Historical Child Sexual Abuse in Schools

The government has approved the establishment of a Commission of Investigation into the Handling of Historical Child Sexual Abuse in Schools, which was the primary recommendation of the Report of the Scoping Inquiry.

The Minister for Education Helen McEntee has appointed Mr. Justice Michael MacGrath to chair the Commission of Investigation.

Access the Terms of Reference.

Introduction

The Commission of Investigation into the Handling of Historical Child Sexual Abuse in Schools has been set up to investigate how concerns or allegations of child sexual abuse were handled in all day and boarding schools in Ireland, including special schools, between 1927 and 2013.

The Commission is in its establishment phase at present and I am now in a position to update on the progress that has been made since my last message.

Commissioners Appointed to Guide Investigation and Survivor Engagement Programme

First, I am pleased to welcome four Commissioners who will join me in leading the work of the Commission.

They are: Ms Justice Mary Ellen Ring, senior legal consultant Mr Roddy Bourke, and child safeguarding experts, Ms Michele Clarke and Mr Kieran McGrath.

Ms Justice Mary Ellen Ring was appointed a judge of the Circuit Court in 2012, where she presided almost exclusively over criminal courts, and a judge of the High Court in 2015 where she served for over ten years. A former Chair of the Garda Síochána Ombudsman Commission from 2015 to 2021, she previously practised as a barrister specialising in criminal and public law, constitutional litigation and child law. She is also co-founder of the Children's Legal Centre and the Association for Criminal Justice Research and Development.

Mr Roddy Bourke is an experienced solicitor who was a partner in McCann FitzGerald LLP from 1992 to 2024 where he specialised in complex litigation and investigations. He has extensive experience acting in tribunals and commissions of investigation and is a former member and Chair of the Law Society’s Litigation, Alternative Dispute Resolution (ADR) and Law Reform Committees.

Ms Michele Clarke is Adjunct Professor at the School of Social Work and Social Policy, Trinity College Dublin. Her previous roles include Chief Social Worker in the Department of Children, Equality, Disability, Integration and Youth, and Chief Inspector of the Social Services Inspectorate. She was the trauma-informed survivor engagement advisor to the Scoping Inquiry into Historical Child Sexual Abuse in Day and Boarding Schools Run by Religious Orders.

Mr Kieran McGrath is an independent safeguarding consultant with twenty years’ experience advising Government and non-Government bodies on child protection and welfare matters. In his career as a social worker, he specialised in sexual abuse prevention, risk assessment and clinical supervision. He led the trauma-informed survivor engagement process for the Scoping Inquiry into Historical Sexual Abuse in Day and Boarding Schools Run by Religious Orders.

In addition to these four appointments, it is my pleasure to confirm that Ms Mary O’ Toole, who chaired the Scoping Inquiry, has been appointed as senior legal advisor to the Commission.

I would like to express my deep appreciation to them for accepting these positions, and I very much look forward to working closely with them in the months and years ahead.

How the Commission of Investigation Will Work

The work that the Commission has been asked to do is defined in the Terms of Reference it has been given, which can be found here. These Terms of Reference set out what the Commission will investigate and broadly, how it will do so. The Commission of Investigation will conduct a formal investigation and it will also have a Survivor Engagement Programme.

Scope of the Commission’s Work

The Scoping Inquiry into Historical Sexual Abuse in Day and Boarding Schools Run by Religious Orders made several recommendations, including the establishment of this Commission. It also recommended that the Commission examine how allegations and concerns of child sexual abuse were handled in all schools in Ireland between 1927 and 2013.

This means that the Commission’s remit is significantly broader than that of the Scoping Inquiry, which was focused on schools run by religious orders. The Commission’s scope includes historical child sexual abuse related to many types of schools that have not been examined in previous inquiries or Commissions.

It is important to note that, under its Terms of Reference , the Commission is required to investigate how concerns of child sexual abuse in day and boarding schools in Ireland were handled by schools and other relevant bodies. The Commission is not tasked with investigating individual cases of child sexual abuse, or making findings in this regard, under its Terms of Reference.

The Commission’s work is divided into four main parts:

1. Survey

Later this year, the Commission will conduct a survey. We will invite survivors of child sexual abuse in schools, and others with relevant information as described below, to answer some initial questions.

The responses to the survey will help to determine the focus of the next stages of the Commission’s work.

2. Investigation

The purpose of the investigation that the Commission will carry out is to examine in detail how concerns or allegations of sexual abuse were handled by schools, and to identify failures to protect children. The Commission is also required to investigate the handling of concerns of child sexual abuse reported to An Garda Síochána, the Department of Education and the HSE.

Under its Terms of Reference, the Commission is required to adopt a sampling approach for the investigation. This means the Commission will select sample cases to investigate based on several factors, including the availability of sufficient witness and documentary evidence. Information gathered through the survey will also help the Commission identify the focus of its Investigation

3. Survivor Engagement Programme

In the survey, survivors of sexual abuse will be invited to indicate if they would like to take part in a Survivor Engagement Programme. This is a voluntary programme which will give survivors a safe and supportive space to share an account of their experience and its impact. The process will be informal, confidential, and anonymised, and will protect each person’s privacy.

In certain circumstances, a family member may provide an account on behalf of a person who experienced such abuse. The Survivor Engagement Programme will report to the Chair of the Commission on the impact of child sexual abuse in schools and on any lessons that can be learned to further strengthen child protection measures in the future. This report will not identify individual participants. It will inform the Chair’s overall report to the Minister for Education and Youth

4. Report

When its work is complete, the Commission will submit a report on its findings to the Minister for Education and Youth.

Survey Update

Under its Terms of Reference, the Commission will conduct a survey in which people who have information about historical child sexual abuse in schools – particularly those who wish to share their own experiences – will be invited to answer some initial questions. This will happen in Autumn of this year.

I want to be clear that this survey is not limited to sexual abuse related to schools run by religious orders. We want to hear from anyone who experienced, witnessed or reported child sexual abuse in any primary or secondary school in Ireland, including special schools, from 1927 to 2013.

When the Survey is launched, the Commission would like to hear from you if:

• You experienced child sexual abuse in connection with a day or boarding school in Ireland between 1927 and 2013.
• You wish to provide information on behalf of a family member who experienced child sexual abuse in connection with a day or boarding school in Ireland between 1927 and 2013.
• You witnessed the sexual abuse of a child in connection with a day or boarding school in Ireland between 1927 and 2013.
• You raised or reported a concern in relation to the sexual abuse of a child in connection with a day or boarding school in Ireland occurring between 1927 and 2013.

The survey is a critical part of the work of the Commission and work is underway to prepare for it. Updates on how and when the survey can be completed will be provided over the coming months, including how to access support to participate.

Preparing a Welcoming Space

In my previous update, I highlighted the importance of acquiring a suitable headquarters for the Commission – a space that will be welcoming for survivors when our investigations and Survivor Engagement Programme formally begin.

I can now confirm that we have identified a premises in Dublin. Work is currently underway to ensure this space will be ready to welcome those taking part in the Survivor Engagement Programme and to support the wider investigation. This includes finalising and implementing a layout that enables the Commission to engage with survivors in a sensitive and supportive way, and that is accessible for those with diverse needs.

Putting Key Safeguards and Systems in Place

Data Protection and Privacy

We are aware that people will share highly sensitive information, and the Commission will seek to gather personal data from survivors and others during its work. It is important that the Commission can tell you what will happen to the information given to us so that you can make an informed decision as to whether to participate.

The Commission is putting in place a comprehensive data policy to ensure that all personal information is managed lawfully, transparently and with the highest standards of security. This work involves defining how personal and sensitive information will be collected, stored, used and safeguarded throughout the process, as well as explaining what happens to information once a Commission of Investigation has completed its work.

The Commission will publish a data privacy notice in due course, in advance of beginning its engagement with survivors and others.

Support for Survivors

The Commission is committed to ensuring that its processes are accessible and inclusive, and that there is support available for those who need it to participate in the survey and the subsequent phases of our work. More information on accessing support will be made available in advance of the launch of the survey.

Commission Website

A dedicated Commission website, with the needs of survivors central to its structure and content, will be launched in the coming months. The website will include clear information and updates on how and when survivors can engage with the Commission, including participation support.

The survey will also be made available via the new website for those who wish to complete it online. It will be available in other formats, including printed copies, too. The survey will be widely advertised when it opens.

I would like to thank you for your patience as we work to put in place all necessary measures to ensure that the Commission is a safe and secure environment for all who engage with it in the months and years ahead.

With best wishes,

Mr. Justice Michael MacGrath

Chair of the Commission of Investigation

As the end of 2025 approaches, I would like to provide an update on what has been taking place since my first message was posted, and to let you know about the Commission’s plans for 2026.

As described in the previous message, the Commission will investigate the handling of allegations or concerns of historical child sexual abuse in all day and boarding schools in Ireland, including special schools, which occurred between 1927 and 2013. The Commission is independent in its work, which will be organised in two streams. One is a formal investigation of sample cases or instances of the handling of allegations, complaints or concerns of child sexual abuse in schools. The other is a Survivor Engagement Programme, which will provide an opportunity for those who experienced historical child sexual abuse in schools to give their account in a non-adversarial, informal and anonymised process. The Commission’s Terms of Reference are available here.

The Report of the Scoping Inquiry suggested the potential scale of historical sexual abuse in schools may be very significant.

Keeping Your Information Safe

We know that people may choose to share personal and sensitive information with the Commission, including details of sexual abuse and of their lives now. We are putting careful legal, technical and data security arrangements in place so that this information is handled safely, in line with data protection law and good practice.

Before anyone decides to engage with the Commission, we will clearly explain what will happen to their information, how it will be stored and for how long, and the limited circumstances in which it may need to be shared with others, so that people can make a fully informed choice about taking part.

Our intention is to be able to clearly explain to anyone who may wish to take part in the Commission, how we expect their information will be gathered, analysed and stored now and in the future. We intend to do this in different ways so as to be accessible to as many people as possible, and this will include a secure Commission website. Work to develop this is underway. Once we have a secure framework in place, our contact details will be made available.

A Welcoming Space And Support At Key Stages In the Commission

It is important that the Commission’s premises will be a welcoming space for survivors when its investigations and its Survivor Engagement Programme formally begin. We intend to provide a suitable space that takes into consideration the wishes expressed by survivors in the Scoping Inquiry and other processes, as far as possible.

It is important that the Commission is in a position to provide support for survivors at key stages of the process, including emotional and psychological support, and support for those with additional needs to facilitate an accessible and inclusive process wherever possible.

Our aim is to have a safe and supportive environment which is hospitable and accessible for those who come forward.

What Will Happen in 2026 – National Survey

The Commission will conduct a survey in which those who have information relating to historical child sexual abuse in all day and boarding schools, including personal experiences, will be invited to answer some initial questions. Our intention is that this survey will be accessible in different ways, taking particular account of those with additional needs.

Through this survey, the Commission will seek initial information which may include where the person attended school, the time-period involved, their experiences, any reports that may have been made of a complaint of child sexual abuse, and information about any alleged perpetrator or person in a position of authority where relevant.

Following detailed analysis of the survey, all interested survivors of historical child sexual abuse in schools will be given the opportunity to give an account of their experiences in the Survivor Engagement Programme. Separately, the Commission will determine its investigative focus from analysis of information gathered in the survey, and also from other available sources. Through the survey, the Commission will consult each person who wishes to come forward about their specific needs and preferences for the next stage of the Survivor Engagement programme. The Commission will endeavour to accommodate these as far as possible.

How We Will Let People Know When The Survey Is Available To Complete

When the Commission has the necessary secure systems in place and can provide comprehensive information and support, it will publicly advertise the survey. This will happen through the media and on the Commission’s own website when it is established. We will also notify support organisations who work with survivors of sexual abuse. The survey will be open for several weeks.

Your patience while this essential work is completed is very much appreciated. I would like to take this opportunity to wish you and your loved ones a peaceful Christmas, and I will update again in the new year.

Mr. Justice Michael MacGrath

Chair of the Commission of Investigation

I am honoured to have been appointed to chair the Commission of Investigation into the Handling of Historical Child Sexual Abuse in Schools.

The Commission has been established in response to a recommendation from the Scoping Inquiry into Historical Sexual Abuse in Day and Boarding Schools Run by Religious Orders and I would like to commend the survivors of abuse who took part in that process.

This new Commission has been given a broader remit and will focus on investigating the handling of allegations or concerns of sexual abuse by those in authority across all day and boarding schools, primary and post-primary, in the State. The Commission will investigate the actions taken, or not taken, by those in positions of authority or responsibility where there were reasonable concerns of child sexual abuse; whether those actions protected that child or other children from harm; and whether by their actions or inactions children were not properly protected.

The Commission has also been tasked with reporting on the impact of historical child sexual abuse in schools on survivors, and on what can be learned to support continued improvement in child protection measures for the future.

The Commission will be independent in its operation and has been given a timeline of up to five years to report to the Minister for Education and Youth. The work that it has been asked to do is set out in its Terms of Reference.

The work of the Commission will be organised into two broad streams. One will be a more formal process, which will select sample cases or instances of the handling of allegations, complaints or concerns of sexual abuse of children in schools for legal investigation in accordance with the Terms of Reference.

The other stream will be a Survivor Engagement Process, which will invite survivors of historical sexual abuse in schools to provide an account of their experience in a more informal, anonymised, non-adversarial process, which fully protects their privacy.

Over the coming months, there is much to be done to establish the Commission’s processes and ways of working. A priority for me as Chair of the Commission is to take the necessary time to make the Commission as safe a place as possible for survivors who may choose to come forward. My aim is to design the work of the Commission so as to be survivor-centred, trauma-informed and as supportive, accessible and inclusive as possible.

I understand that there are many survivors who want to share their experience with the Commission and I want to assure them that we will strive to ensure that their voices will be heard. When the Commission has made the necessary preparations and is in a position to begin its work, this will be advertised. I would ask survivors and other stakeholders for their patience as the Commission begins its work, and I thank you for your forbearance.

The task ahead of the Commission is a serious and important one, and I am keenly aware of our great responsibility to survivors. I am also deeply conscious of the importance of this Commission for Irish society as a whole, and how what we learn from the past can contribute to our understanding of ourselves and can improve the lives of children now and in the future.

I am honoured to have been appointed as the Chair of the Commission and I intend to undertake this work with gravity, fairness, sincerity and urgency. It deserves no less.

Mr. Justice Michael MacGrath

Chair of the Commission of Investigation

The Commission will investigate the handling of concerns of historical child sexual abuse in schools, as set out in its Terms of Reference.

The Commission of Investigation will have a significant Survivor Engagement Programme. Further information on how the Commission will engage with survivors of historical child sexual abuse in schools will be published on this website as the Commission progresses. When the Commission is ready to gather information from survivors, this will be widely advertised, and further information will be posted on this website at that time. This will happen in the coming months, after an initial phase of preliminary work.

Support for those who have experienced sexual abuse is available from a number of agencies listed below. If you are unsure about what type of support you need, speaking to your GP is advised.

One in Four

One in Four provides support for adult survivors of childhood sexual abuse:

• phone +353 1 662 4070
• email: info@oneinfour.ie
• website: www.oneinfour.ie

National Counselling Service

The HSE’s National Counselling Service provides a professional, confidential counselling and psychotherapy service to people age 18 or older who experienced childhood abuse. Access to the service can be made by self-referral or referral by a GP.

The service is available in all HSE Health Regions. Contact information varies depending on your location in Ireland but contact details for each local area can be found at: Referring yourself to the NCS.

Connect Counselling

Connect Counselling is a HSE telephone counselling and support service for adults who have experienced childhood abuse. It is staffed by qualified counsellors and is available Wednesday to Sunday evenings from 5pm-9pm.

Republic of Ireland: Freephone 1800 477 477

Northern Ireland and UK: 00800 477 477 77

Outside ROI and UK: 00353 (0)1 865 7495

Website: connectcounselling.ie

Rape Crisis Centre

Offering a free and confidential listening and support service for anyone who has been raped, sexually assaulted, sexually harassed or sexually abused at any time in their lives.

24-hour National Helpline: 1800 77 88 88

Email: counselling@rcc.ie (office hours)

An Garda Síochána

Child Sexual Abuse Freephone - 24-hour line for reporting a complaint of child sexual abuse: 1800 555 222

Complaints of sexual abuse can also be made in any local Garda station.

Samaritans

Samaritans is available for confidential, non-judgmental, listening support. You can call or email Samaritans anytime, day and night:

• freephone: 116 123
• email: jo@samaritans.ie
• website: samaritans.ie

Pieta

Pieta provide counselling at their centres nationwide, and telephone support. Their services are for people who are at risk of suicide or self-harm, and for people who have been bereaved by suicide:

• freephone 1800 247 247 anytime, day or night
• text HELP to 51444 (standard message rates apply)
• visit www.pieta.ie for more information

Text About It

A free text service providing emotional support to anyone experiencing a crisis, through engagement in a text conversation with a trained and supervised volunteer:

• text HELLO to 50808 to start a conversation
• visit www.textaboutit.ie for more information

Mental Health Information

Visit www.yourmentalhealth.ie for information on how to mind your mental health, support others, or to find a service in your area. On the site you can find information on supports provided by HSE-funded organisations, including self-help, counselling, helplines and online supports. You can also call the HSE Your Mental Health Information Line on freephone 1800 111 888 for information on mental health services in your area. The Information Line is open anytime, day or night.

Britain

For those living in Britain who would like to avail of supports locally, there are a number of organisations – financially supported by the Department of Foreign Affairs through the Emigrant Support Programme - that offer support.

ICAP

ICAP is the only specialist British-based counselling and psychotherapy service supporting people from the Irish community facing a range of emotional issues, including depression, anxiety and stress. They have particular expertise in working with those who have survived childhood abuse and offer a free therapy service to survivors of institutional abuse:

• phone: 0207 7272 2906
• address: 96 Moray Rd, Finsbury Park, London N4 3L
• email: London info@icap.org.uk
• email: West Midlands info@icapbirmingham.org.uk
• website: icap.org.uk

London Irish Centre

The London Irish Centre’s survivors integrated service provides support and advocacy to survivors and former residents of Irish institutions living in London and the South East. They can be contacted on 0207 916 2222, and community@londonirishcentre.org

Further information is available.

Fréa – Renewing Roots

Fréa – Renewing Roots is a partnership between Irish Community Care, Leeds Irish Health and Homes, and Irish Community Care Manchester, that supports survivors and former residents of Irish institutions, as well as offering emotional and practical support. Phone: 07458 138 682, email: renewingroots@frea.org.uk

Further information is available.

Coventry Irish Society

Coventry Irish Society works with survivors and former residents of Irish institutions. Phone: 0247 625 6629, Email: simon.mccarthy@covirishsoc.org.uk

Further information is available.

United States

The Coalition of Irish Immigration Centres provides support to the Irish/Irish American communities they serve. Further information is available and details of the centres are available.

Other countries

For people living outside Ireland, Britain and the United States, their local Irish Embassy or Consulate can provide details of organisations who may be able to assist. A list of embassies and consulates is available from the Department of Foreign Affairs and Trade.

If you wish to report an allegation of sexual abuse you can contact your local Garda station, the Garda Sexual Crime Management Unit (01-6663430) or the Garda Child Sexual Abuse Reporting Line (1800 555 222), which is a confidential and free service available on a 24/7 basis. Alternatively, you can email GNPSB_SCMU@garda.ie