In making the apology, the Government owned up to this fact, and in so doing, the State assumed a legal liability. The truth is that the State made the first move. It got the religious orders on board. If it had dragged its feet or delayed, it would have been widely criticised. Moral pressure was the only weapon the State had at its disposal when negotiating with the 18 religious orders. They did not have to make nor could they be made to make a contribution. That irrefutable point strengthened their hand.