Independent Safeguarding Review for the Ulster Unionist Party into Jeffrey Donaldson
Purpose of the Review
I begin by paying tribute to the brave victims of Jeffrey Donaldson and to thank them for taking the difficult step of coming forward. Their actions exposed not just Jeffrey Donaldson’s criminal behaviours but also a range of other behaviours not consistent with the values of the Ulster Unionist Party (“UUP”).
Between 1982 and 2003 (21 years), Jeffrey Donaldson served in various positions of power within the UUP. In 1982, he was a UUP constituency agent in South Down before being elected in 1983 to the Northern Ireland Assembly, representing South Down. In 1997, Jeffrey Donaldson became the Member of Parliament for Lagan Valley before resigning from the Party in December 2003.
As Party Leader, it is important not just to me but to the UUP that we seek independent assurances that a culture of safeguarding is embedded within the Party, that members who hold positions of trust and authority follow high standards, and that everyone knows:
- What constitutes a safeguarding concern.
- Our roles and responsibilities to protect individuals from harm.
- How to report breaches of trust and authority if they occur.
This Review is to foster learning and accountability so that anyone with concerning behaviours is identified at the earliest and there is swift intervention.
As such, I have commissioned an Independent Review and invite members of the public, former and current UUP members, staff, constituency workers, elected representatives, volunteers, witnesses, confidants, and others, who suffered trauma, who heard concerns, received disclosures, observed behaviour, participated in decisions, or knew of others who possessed relevant information, to come forward and recount their experiences in confidence. Most importantly, I want those experiences acknowledged and validated in a safe and supportive space. For those who have suffered trauma, I also acknowledge the prolonged distress you may have carried since then and the impact the current situation may be having on you now.
I want to emphasise; while Jeffrey Donaldson was convicted of offences committed against children, this exercise is not solely about child safeguarding. Information concerning alleged sexual misconduct, harassment, coercive or controlling behaviour, bullying, misogyny, intimidation, exploitation, abuse of status or authority, retaliation, and other boundary violations involving adults will be receivable.
Importantly, I also want to emphasise that the emotional wellbeing of contributors, any safety concerns they have, and how best to support their wellbeing, will be prioritised throughout this Review.
How to engage with the Independent Review
Please share your information by completing the form at the bottom of this page: www.uup.org/donaldson_review. This form will go directly, and securely, to an independent trauma informed professional*.
The link will be active from 16/09/2026 to 14/10/2026.
For those who contribute to this Review, confidentiality will always be maintained, except in the following circumstances; where there is a serious concern about that person’s safety, the safety of another person, or where the law requires disclosure. Where possible and appropriate, any need to share information will be discussed with that person beforehand and only relevant information will be shared.
Terms of Reference
1. Conduct an independent, confidential, and trauma-informed Review to gather information about Jeffrey Donaldson’s behaviours in the course of, or connected with, his UUP duties, 1982 – 2003, in Northern Ireland or another jurisdiction; or outside his formal UUP duties, but nevertheless were known to UUP members or officials, at that time; or where his behaviours escaped the UUP’s awareness but pointed to a breakdown in the UUP’s reporting and monitoring systems. A trauma informed safeguarding professional, with no ties to the UUP, will lead this Review.
2. The independent safeguarding professional will be supported in their work by an advisory group of independent victim advocates.
3. ‘Information’ includes warnings, informal complaints, observations about his behaviour, concerns for women, men, children, young people, allegations of bullying or controlling behaviour (including towards junior UUP members, or UUP employees), or advice not to be alone with an individual.
4. Provide a safe, secure, and confidential method through which individuals can come forward and share information, about their concerns or experiences. The emotional wellbeing of contributors will be prioritised, including any safety concerns they may have, and how best to support them.
5. Provide a safe, confidential, and independent setting in which to talk openly, if an individual is willing to meet in person.
6. With consent, signpost individuals to appropriate independent trauma informed support services.
7. For those who contribute to the Review, confidentiality will be maintained at all times, except in the following circumstances, where there is a serious concern about that person’s safety, the safety of another person or where disclosure is required by law; section 5 of the Criminal Law Act (Northern Ireland) 1967.
8. Where the law requires disclosure, the independent safeguarding professional will refer this directly (without recourse to the UUP) to the PSNI under an agreed procedure.
9. The processing and storage of information and personal data will be in accordance with the Data Protection Act 2018 and General Data Protection Regulation.
10. If any person raised or reported a concern to the Party between 1982 and 2003, the Review will examine:
- The support afforded to the person at that time.
- Actions taken to manage Jeffrey Donaldson’s risk to that person and others.
- Information withheld or not acted upon, and why.
- The extent to which Jeffrey Donaldson’s status and power affected the response.
- How others in positions of authority, if they knew, responded to his behaviour.
- The extent to which decisions and actions taken complied with relevant safeguarding standards and legal requirements at the time.
- The extent to which decisions and actions were taken, in the absence of the standards and requirements applicable today, because it was the right thing to do.
- Whether conduct aligned with the required standards of the UUP.
- The historical culture, if one existed, that allowed concerning behaviour to remain hidden or go unchallenged.
- What insights can be gained to strengthen UUP safeguarding practice, standards, and culture.
11. In the event of any new concerns raised about Jeffrey Donaldson’s behaviour not previously raised, the Review will consider what lessons the UUP can learn to strengthen safeguarding practice, standards, and culture.
12. In the event of any concerns raised about Jeffrey Donaldson’s behaviour that occurred after 2003, the independent safeguarding professional, with consent, will share this with the relevant parallel Review, for example the Northern Ireland Assembly Review; the Democratic Unionist Party Independent Focused Review (INEQE Safeguarding Group).
13. Establish if the UUP holds any relevant records connected to his behaviours during Jeffrey Donaldson’s tenure within the Party.
14. At the conclusion of the Review, the independent safeguarding professional will author a report outlining their findings and recommended action to take from which the UUP will create a timebound action plan to address issues raised.
15. The UUP, who commissioned this Review, will own the Review Report. Amendments will only be permissible if consented to by the author. The UUP will publish, where possible, the full report or, following legal advice, at a minimum, an Executive Summary, Key Findings, and Recommendations.
* Anne Marks is an independent trauma informed safeguarding consultant. She is an Independent Domestic Homicide Review Chair (UK Home Office certified) and holds a Master of Science (MSc) (Commended) in Child Forensics Studies: Psychology and Law from Queen’s University, Belfast.
Anne brings over thirty years of frontline experience of service in trauma and victim-survivor support and has dedicated her career to improving public services in this area. Ulster University recognised her extensive experience in this field bestowing on her an Honorary Doctorate (Doctor of Science) ‘for services to vulnerable people.’
Anne is a former police officer retiring in 2020 and was the PSNI’s organisational lead for the development and establishment of The Rowan, Northern Ireland’s regional Sexual Assault Referral Centre.
From 2021, Anne has conducted Domestic Homicide Reviews, Public Protection Arrangements for Northern Ireland (PPANI) Serious Case Reviews, Adult Safeguarding Reviews, and operational and governance reviews. These Reviews are mechanisms primarily aimed at strengthening agency practice moving forward, working within agreed Terms of Reference and timescales to achieve effective outcomes.
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