Origins of the role
The role of the Independent Public Advocate (IPA) was created in response to repeated failures in how the state has historically supported victims, survivors and bereaved families after major incidents in England and Wales.
Across multiple incidents, people affected have had to search for answers while living with grief and trauma. They have often faced complex, slow and adversarial systems. Many families have felt unheard, excluded from decisions and unable to access the information they needed.
Too often, families have had to take on roles they never chose – becoming investigators, campaigners and advocates – simply to understand what happened to their loved ones and to seek justice.
The IPA exists because the burden should not fall on them. It should rest with the systems and institutions responsible for providing support, accountability and justice.
Learning from past experiences
The need for the IPA has been shaped by the experiences of families affected by major incidents, including Hillsborough (1989), Grenfell Tower (2017), and the Manchester Arena attack (2017).
The Hillsborough disaster, in particular, highlighted serious failures. For many years, families were given incorrect information and were not able to take part fully in the processes meant to establish the truth. In 2016, 27 years later, the courts found that those who died had been unlawfully killed.
In 2017, Bishop James Jones published The Patronising Disposition of Unaccountable Power. This report set out how public authorities had treated families after Hillsborough and called for change. One key recommendation was the creation of an Independent Public Advocate to support bereaved families and help them engage with inquests and inquiries.
These concerns are not confined to Hillsborough. Victims, survivors and bereaved families affected by other major incidents continue to experience barriers to information, unequal access to resources and a lack of support when dealing with public bodies at a time of deep distress.
Creating the Independent Public Advocate
In May 2024, Parliament passed the Victims and Prisoners Act 2024, which formally established the IPA as an independent, arm’s‑length public office with responsibility for supporting victims of major incidents occurring in England and Wales.
Under the Act, a major incident is one that causes the death of, or serious harm to, a significant number of people and is formally designated as such by the Secretary of State for Justice. Once deployed, the IPA helps people understand processes such as investigations, inquests and public inquiries, and supports them to take part in these processes in a meaningful way.
Appointment of the First Independent Public Advocate
Cindy Butts was appointed as the first Independent Public Advocate in September 2025 to serve a five‑year term.
This is the first role of its kind anywhere in the world.
The IPA was first deployed following the attack at Heaton Park Synagogue Attack on 3 October 2025, bringing the new role into operation from its earliest days.
The role’s establishment marks an important step towards a more open, accountable and compassionate approach – one in which victims, survivors and bereaved families are no longer left to navigate complex systems alone, but are supported to secure truth and justice in the aftermath of major incidents