How the Inquiry operates

Background to the Inquiry

On 1 March 2020 the first positive case of COVID-19 in Scotland was confirmed. By 11 March 2020, the World Health Organization had classified the outbreak as a global pandemic.

The Scottish COVID-19 Inquiry has been set up to establish the facts and learn the lessons of the strategic devolved response to the COVID-19 pandemic in Scotland. 

On 14 December 2021 the Deputy First Minister announced that the Honourable Lady Poole would chair the Scottish COVID-19 Inquiry. The Inquiry's initial Terms of Reference were also published, following a period of consultation. The official set up date for the inquiry was 28 February 2022.

On 27 October 2022, the Deputy First Minister announced that the Honourable Lord Brailsford would chair the Scottish COVID-19 Inquiry following the resignation of Lady Poole for personal reasons on 30 September 2022. 

On 28 October 2022, the Inquiry's Terms of Reference were re-published, after being amended to include: 'to demonstrate how a human rights-based approach by the Inquiry has contributed to the Inquiry's findings in facts and recommendations'. 

Inquiry aims and objectives

The Scottish COVID-19 Inquiry is investigating, independent of government, the devolved strategic response to the COVID-19 pandemic. The scope of this investigation is set out in its Terms of Reference, and includes the impact on the provision of health and social care, education and certification, business and financial and welfare support.

Following a robust and wide-ranging investigation, the Inquiry will report its findings to Scottish Ministers, including a factual record of the key strategic elements of the handling of the pandemic, identify any lessons and implications for the future, and provide recommendations. 

The Scottish COVID-19 Inquiry is a statutory public inquiry, which means it is established under the Inquiries Act 2005. That Act and the Inquiries (Scotland) Rules 2007 contain a range of legal provisions, including provisions about Terms of Reference, and powers to summon witnesses to give evidence on oath and compel production of documents. Together, they provide the legal framework which governs the Inquiry. 

The Inquiry will consider all relevant material provided to it which is within the scope of the published Terms of Reference. The Inquiry will only make findings based on that material. 

 

The Inquiry Chair's role

As Chair of the Inquiry, Lord Brailsford acts in an independent capacity and is supported by the secretariat, legal team and Counsel. 

The Chair is responsible for implementing the Inquiry’s Terms of Reference and deciding its procedures, subject to a statutory duty to act fairly while avoiding unnecessary costs. 

It is for the Chair to decide how best to fulfil the Terms of Reference and conduct the investigation. 

The Chair supervises the running of the Inquiry and is responsible for delivering the final report to Scottish Ministers. The Chair cannot make any findings of civil or criminal liability, nor can he award any compensation.

 

UK Covid-19 Inquiry

A UK Covid-19 Inquiry was also set up by the UK Government to investigate the handling of COVID-19 across the four nations. Overlap with the Scottish COVID-19 Inquiry's investigation is likely to occur and both inquiries have signed a memorandum of understanding to reduce duplication of its work. 

The UK Covid-19 Inquiry's Terms of Reference can be found on its website.

Procedure

The Scottish COVID-19 Inquiry is independent from government, and it is for the Chair to decide the Inquiry's procedure and conduct, with regard to the need to avoid any unnecessary cost.

In 2020 it was estimated there were 5.5 million people living in Scotland. Everybody in Scotland was affected by the strategic response to the COVID-19 pandemic. 

For the Inquiry to conduct its functions within a reasonable period, it will focus on its key aim of reporting on lessons learned. There must be a balance between conducting a rigorous investigation and reporting so that lessons learned and recommendations are available as soon as possible.

Terms of Reference

Introduction to the Inquiry’s Terms of Reference

The Inquiry's Terms of Reference are set by Scottish Ministers and specify the areas the Inquiry has the power to investigate. 

The Scottish COVID-19 Inquiry's Terms of Reference list 12 areas it is investigating, to establish lessons learned and make recommendations for the future. The areas cover various aspects of health, social care, education and certification, young people, and business and welfare support in Scotland.

Before setting up the Scottish COVID-19 Inquiry, Scottish Ministers consulted on the Terms of Reference and a consultation report was published.

The Inquiry is investigating the areas in the updated Terms of Reference of 28 October 2022, which are set out below. The period which the Inquiry is investigating is from 1 January 2020 to 31 December 2022. 

Approach to the Terms of Reference

The Terms of Reference do not attempt to present a definitive list of every issue or every person that the Inquiry will consider. Instead, they specify areas of investigation which the Inquiry will interpret flexibly. 

The Scottish COVID-19 Inquiry is investigating the devolved (policy areas under the control of the Scottish Government) strategic response to the COVID-19 pandemic in Scotland. It is not entitled to investigate areas under the control of the UK Government.

The Inquiry's Terms of Reference

Last updated: 28 October 2022. 

Aim
  1. The aim of this inquiry is to establish the facts of, and learn lessons from, the strategic response to the COVID-19 pandemic in Scotland.
Scope
  1. To investigate the strategic elements of the handling of the pandemic relating to:
    1. ​​​​​​pandemic planning and exercises carried out by the Scottish Government;
    2. the decisions to lockdown and to apply other restrictions and the impact of those restrictions;
    3. the delivery of a system of testing, outbreak management and self isolation;
    4. the design and delivery of a vaccination strategy;
    5. the supply, distribution and use of Personal Protective Equipment;
    6. the requirement for shielding and associated assistance programmes, provided or supported by public agencies;
    7. in care and nursing homes: the transfer of residents to or from homes, treatment and care of residents, restrictions on visiting, infection prevention and control, and inspections;
    8. the provision of healthcare services and social care support, including the management and support of staff and the recognition, involvement and support of unpaid carers;
    9. the delivery of end-of-life care and the use of DNACPR (do not attempt cardiopulmonary resuscitation decisions);
    10. welfare assistance programmes, for example those relating to benefits or the provision of food, provided or supported by public agencies;
    11. the delivery of education and certification; and
    12. financial support and guidance given to businesses and the self-employed, including in relation to identification of keyworkers, by public agencies.
Reporting
  1. To create a factual record of the key strategic elements of the handling of the pandemic
  2. To identify lessons and implications for the future, and provide recommendations
  3. To demonstrate how a human rights-based approach by the inquiry has contributed to the inquiry's findings in facts and recommendations 
  4. To provide reports to the Scottish Ministers as soon as practicable
Interpretation
  1. When interpreting and applying these terms of reference:
    1. in relation to points 2(b) to 2(l), investigations will cover the period between 1 January 2020 and 31 December 2022
    2. the inquiry will, as the Chair deems appropriate and necessary, consider the impacts of the strategic elements of handling of the pandemic on the exercise of Convention rights (as defined in Section 1 of the Human Rights Act 1998)
    3. the inquiry will, as the Chair deems appropriate and necessary, consider any disparities in the strategic elements of handling of the pandemic, including unequal impacts on people
    4. the inquiry can consider only “Scottish matters” as defined in section 28(5) of the Inquiries Act 2005
    5. the inquiry respects the independent role of the Lord Advocate in relation to the prosecution of crime and the investigation of deaths in Scotland
    6. the inquiry must make reasonable efforts to minimise duplication of investigation, evidence gathering and reporting with any other public inquiry established under the Inquiries Act 2005

List of issues being investigated by Term of Reference

The Inquiry has published a list of the issues it is investigating under each of its Terms of Reference. The issues the Inquiry will be investigating are outlined with reference to the 12 areas set out in Terms of Reference 2(a) to (l).

Investigative Portfolios

The Inquiry has been split into four thematic investigative streams, called portfolios. These four portfolios are being investigated concurrently and each covers different aspects of the Inquiry's Terms of Reference. 

The Inquiry appreciates that there will inevitably be overlap between the matters being considered under each of the portfolios and will work to avoid duplication where possible.

 

Portfolio 1 – Public sector response

a) pandemic planning and exercises carried out by the Scottish Government;

b) the decisions to lockdown and to apply other restrictions and the impact of those restrictions;

c) the delivery of a system of testing, outbreak management and self-isolation;

d) the design and delivery of a vaccination strategy;

e) the supply, distribution and use of Personal Protective Equipment; and

f) the requirement for shielding and associated assistance programmes, provided or supported by public agencies.

 

Portfolio 2 – Financial and welfare support to businesses and individuals

j) welfare assistance programmes, for example those relating to benefits or the provision of food, provided or supported by public agencies; and

l)  financial support and guidance given to businesses and the self-employed, including in relation to identification of keyworkers, by public agencies.

 

Portfolio 3 – The provision of health and social care services

g) in care and nursing homes: the transfer of residents to or from homes, treatment and care of residents, restrictions on visiting, infection prevention and control, and inspections; 

h) the provision of healthcare services and social care support, including the management and support of staff and the recognition, involvement and support of unpaid carers; and

i) the delivery of end-of-life care and the use of DNACPR (do not attempt cardiopulmonary resuscitation decisions).

 

Portfolio 4 – Education, certification, impact on children and young people

k) the delivery of education and certification.

What sources does the Inquiry use to inform its investigations?

Although the oral evidence given by witnesses at public hearings is the most visible source of information guiding the Inquiry’s investigations, there are other sources.

 Illustration of the six sources of information the Inquiry uses: expert witnesses, voluntary and mandatory calls for evidence, written witness statements, independent academic research and the Inquiry’s public participation project, Let’s Be Heard.

Illustration of the six sources of information the Inquiry uses: expert witnesses, voluntary and mandatory calls for evidence, written witness statements, independent academic research and the Inquiry’s public participation project, Let’s Be Heard.

These are:

  • expert witnesses;
  • voluntary and mandatory calls for evidence;
  • written witness statements;
  • independent academic research; and
  • the Inquiry’s public participation project, Let’s Be Heard.

 

You can find out more about each source of information below:

Expert witnesses

The Inquiry will commission reports from independent experts who provide their own professional opinion about what happened during the pandemic. Some expert witnesses may also be asked to give oral testimony at a public hearing. Their professionally-informed views do not pre-empt the eventual conclusions and recommendations the Inquiry will make.

 

Voluntary calls for evidence

The Inquiry has asked individuals and organisations to voluntarily provide documents and evidence under Rule 8 of the Inquiries (Scotland) Rules of 2007. 

 

Mandatory calls for evidence

The Inquiry has also served notices under Section 21 of the Inquiries Act of 2005. These are mandatory requests to individuals or organisations to provide relevant documents and evidence. 

In both cases (voluntary and mandatory calls for evidence), the information provided is analysed by the Inquiry’s legal team, considered by the Chair, and may be referred to in witness testimony.

 

Witness testimony

The Inquiry is taking written witness statements from people and organisations. These statements may be published on the Inquiry’s website. Some witnesses will also be asked to attend a public hearing to provide oral evidence based on their statements. Our hearings are chaired by Lord Brailsford, the Inquiry’s chair.

 

Academic research

The Inquiry has commissioned external, independent academic research into what happened during the pandemic. 

These reports, which are published on the Inquiry’s website, contain the views of their authors and are not binding on the Inquiry.

 

Let’s Be Heard

The Inquiry’s public participation project, Let’s Be Heard, is the main way in which people have contributed to the Inquiry. Let’s Be Heard aims to give a voice to as many people across Scotland as possible by inviting people to share their experiences of the pandemic and highlight any lessons they think should be learned. 

More than 5,000 people have shared their experiences with Let’s Be Heard. These experiences will guide the Inquiry’s investigations and can help identify potential witnesses for our hearings.

Let's Be Heard will publish a series of reports based on the experiences shared by the public in Scotland. Its first report was published in November 2023.