The six months following the Anglo-Irish treaty of 1921 saw an appalling level of violence in Belfast and on the border, which threatened the stability of the newly formed Northern Ireland government. Official figures for the period between 6 December 1921 and 31 May 1922 listed seventy-three protestants and 147 catholics killed in Belfast and eight protestants and twenty-two catholics killed in the six counties outside Belfast. In that period two wide-ranging agreements aimed to reform the northern government and security system: they became known, somewhat inaccurately, as the Craig-Collins pacts, of 21 January and 30 March 1922. This article discusses the motivation behind the pacts and the reasons for their failure in a wide context, by giving equal weight to the attitudes of the British government and to opinion on both sides of the Irish border.
The Northern Ireland government was established in 1920–21. It was unrecognised by the dáil government in the south and by much of the northern catholic minority. The province developed against a background of violence and upheaval, including the expulsion of catholic shipyard workers from their work in the summer of 1920; the dáil retaliated by boycotting Belfast goods. The period also saw increasing I.R.A. activity in the north during the latter stages of the Anglo-Irish war, and the five-month truce that followed it. Though the northern government was not a party to the treaty negotiations, only reluctantly accepting the granting of dominion status to the south, the months before and after the settlement greatly increased tensions in the north-east.