Modules 2, 2A, 2B and 2C

¶A1.8. This Report concerns the UK's core political and administrative decision-making in response to the pandemic. It brings together the work of four distinct modules – Modules 2 (UK), 2A (Scotland), 2B (Wales) and 2C (Northern Ireland) – which each opened on 31 August 2022.

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Outlines of Scope

¶A1.9. In order to reflect the unique issues arising within each jurisdiction as a result of the pandemic, each module adopted its own Outline of Scope but all included a consideration of the following:

The structures and bodies within the UK government and devolved administrations concerned with the response to the pandemic, relationships and communications between these governments and with regional and/or local authorities.
The initial understanding of, and response to, the nature and spread of Covid-19 in light of information received from relevant international and national bodies, advice from scientific, medical and other advisers, and the response of other countries.
Decision-making in relation to non-pharmaceutical interventions, including: – lockdowns, local and regional restrictions, circuit breakers, working from home, reduction of person-to-person contact, social distancing, the use of face coverings and border controls; – the timeliness and reasonableness of such interventions, including the likely impacts had decisions to intervene been taken earlier or differently; – the degree of and rationale behind differences in approach between the UK government and devolved administrations; – the development of the approach to non-pharmaceutical interventions in light of the understanding of their impact on transmission, infection and death; – the identification of at-risk and other vulnerable groups and the assessment of the likely impact of the contemplated non-pharmaceutical interventions on such groups in light of existing inequalities; and – the impact, if any, of the funding of the pandemic response in the devolved administrations on such decision-making, including funding received from the UK government.¹⁵¹⁵ 'Module 2: Provisional Outline of Scope', UK Covid-19 Inquiry, 31 August 2022 (https://covid19.public-inquiry.uk/documents/ module-2-provisional-outline-of-scope); 'Module 2A: Provisional Outline of Scope', UK Covid-19 Inquiry, 31 August 2022 (https:// covid19.public-inquiry.uk/documents/module-2a-provisional-outline-of-scope); 'Module 2B: Provisional Outline of Scope', UK Covid-19 Inquiry, 31 August 2022 (https://covid19.public-inquiry.uk/documents/module-2b-provisional-outline-of-scope); 'Module 2C: Provisional Outline of Scope', UK Covid-19 Inquiry, 31 August 2022 (https://covid19.public-inquiry.uk/documents/module-2c-provisional-outline-of- scope)Show full note

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Access to and use in decision-making of: – medical and scientific expertise, data collection and modelling relating to the spread of the virus, including the measuring and understanding of transmission, infection, mutation, reinfection and death rates; – the certificate system and excess mortality; and – the relationship between and operation of systems for the collection, modelling and dissemination of data.
Public health communications in relation to: – steps being taken to control the spread of the virus; – transparency of government messaging; – the use of behavioural management; and – the maintenance of public confidence in the UK government and devolved administrations, including the impact of alleged breaches of rules and standards by ministers, officials and advisers.
The public health and coronavirus legislation and regulations that were proposed and enacted, their proportionality and enforcement.

¶A1.10. Each module prepared Lists of Issues to supplement the Provisional Scopes, which were intended to provide greater detail about the matters that might warrant investigation. They were intended as a guide and not to be prescriptive about the issues that would be addressed.

Core Participants

¶A1.11. In accordance with rule 5 of the Inquiry Rules 2006 and the Inquiry's Core Participant Protocol, the Chair designates a number of Core Participants – individuals, organisations or institutions with a specific interest – in each module.¹⁶¹⁶ Inquiry Rules 2006 (https://www.legislation.gov.uk/uksi/2006/1838/contents/made); 'Core Participant Protocol', UK Covid-19 Inquiry, 21 July 2022 (https://covid19.public-inquiry.uk/documents/uk-covid-19-inquiry-core-participant-protocol) Core Participants have enhanced rights in the Inquiry process, including receiving disclosure of documents, being represented, making legal submissions and suggesting lines of enquiry. They are also able to apply to the Inquiry for funding to cover legal and other costs.

¶A1.12. In Module 2, the Inquiry received 78 applications for Core Participant status, and the Chair appointed 39 Core Participants, some of which were jointly designated.¹⁷¹⁷ 'List of Module 2 Core Participants', UK Covid-19 Inquiry, 28 October 2022 (https://covid19.public-inquiry.uk/documents/list-of- module-2-core-participants)

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¶Table 6: Module 2 Core Participants

¶Name of organisation/individual Date of designation British Medical Association 13 October 2022 Care England, Homecare Association, National Care Forum 13 October 2022 The Chancellor of the Duchy of Lancaster 13 October 2022 Covid-19 Bereaved Families for Justice 13 October 2022 Covid-19 Bereaved Families for Justice Cymru 13 October 2022 Department of Health and Social Care 13 October 2022 Disability Rights UK, Disability Action Northern Ireland, Inclusion 13 October 2022 Scotland, Disability Wales / Anabledd Cymru The Executive Office of Northern Ireland 13 October 2022 Federation of Ethnic Minority Healthcare Organisations 13 October 2022 Government Office for Science 13 October 2022 HM Treasury 13 October 2022 Local Government Association, Welsh Local Government Association 13 October 2022 Long Covid Kids, Long Covid SOS, Long Covid Support 13 October 2022 National Police Chiefs' Council 13 October 2022 NHS England 13 October 2022 Northern Ireland Covid-19 Bereaved Families for Justice 13 October 2022 Office of the Chief Medical Officer 13 October 2022 Save the Children UK, Just for Kids Law, Children's Rights Alliance for 13 October 2022 England Scottish Covid Bereaved (formerly Scottish Covid-19 Bereaved 13 October 2022 Families for Justice) Scottish Ministers 13 October 2022 Secretary of State for Foreign, Commonwealth and Development 13 October 2022 Affairs Secretary of State for the Home Department 13 October 2022 Solace Women's Aid, Southall Black Sisters 13 October 2022 Trades Union Congress 13 October 2022 UK Statistics Authority 13 October 2022 Welsh Government 13 October 2022 UK Health Security Agency 17 October 2022 Imperial College London 25 October 2022

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¶A1.13. In Module 2A, the Inquiry received 24 applications for Core Participant status, and

the Chair appointed 11 Core Participants, some of which were jointly designated.¹⁸¹⁸ 'List of Module 2A Core Participants', UK Covid-19 Inquiry, 21 November 2022 (https://covid19.public-inquiry.uk/documents/list-of-module-2a-core-participants) The Scottish Women's Rights Organisation (a group of women's rights organisations) requested withdrawal of Core Participant status, which was effected on 18 December 2023, leaving Module 2A with 10 Core Participants.¹⁹¹⁹ 'Notice of Determination: Core Participant Application Module 2a – Scottish Women's Rights Organisation', UK Covid-19 Inquiry, December 2023 (https://covid19.public-inquiry.uk/documents/scottish-womens-rights-organisation-swro-module-2a-cp- determination-removal-18-december-2023)

¶Table 7: Module 2A Core Participants

¶Name of organisation/individual Date of designation National Police Chiefs' Council 13 October 2022 NHS National Services Scotland 13 October 2022 Public Health Scotland 13 October 2022 Scottish Care 13 October 2022 Scottish Covid Bereaved 13 October 2022 (formerly Scottish Covid-19 Bereaved Families for Justice) Scottish Ministers 13 October 2022 Disability Rights UK, Inclusion Scotland 16 November 2022 Trades Union Congress, Scottish Trades Union Congress 10 February 2023

¶A1.14. In Module 2B, the Inquiry received 19 applications for Core Participant status, and the Chair appointed 11 Core Participants, some of which were jointly designated.²⁰²⁰ 'List of Module 2B Core Participants', UK Covid-19 Inquiry, 21 November 2022 (https://covid19.public-inquiry.uk/documents/list-of-module-2b-core-participants)

¶Table 8: Module 2B Core Participants

¶Name of organisation/individual Date of designation Care Rights UK (formerly Relatives & Residents Association), John's 13 October 2022 Campaign Children's Commissioner for Wales 13 October 2022 National Police Chiefs' Council 13 October 2022 Public Health Wales 13 October 2022 Trades Union Congress 13 October 2022 Welsh Government 13 October 2022 Welsh Local Government Association 13 October 2022 Covid-19 Bereaved Families for Justice Cymru 26 October 2022 Disability Rights UK, Disability Wales 16 November 2022

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¶A1.15. In Module 2C, the Inquiry received 38 applications for Core Participant status, and the Chair appointed 11 Core Participants.²¹²¹ 'List of Module 2C Core Participants', UK Covid-19 Inquiry, 21 November 2022 (https://covid19.public-inquiry.uk/documents/list-of-module-2c-core-participants

¶Table 9: Module 2C Core Participants

¶Name of organisation/individual Date of designation Commissioner for Older People for Northern Ireland 13 October 2022 Department of Finance (Northern Ireland) 13 October 2022 Department of Health (Northern Ireland) 13 October 2022 The Executive Office of Northern Ireland 13 October 2022 Arlene Foster, The Rt Hon the Baroness Foster of Aghadrumsee DBE 13 October 2022 (First Minister of Northern Ireland from January 2016 to January 2017 and from January 2020 to June 2021) Paul Givan MLA (First Minister of Northern Ireland from June 2021 to 13 October 2022 February 2022) National Police Chiefs' Council 13 October 2022 Northern Ireland Covid-19 Bereaved Families for Justice 13 October 2022 Michelle O'Neill MLA (deputy First Minister of Northern Ireland from 13 October 2022 January 2020 to February 2022) Trades Union Congress 13 October 2022 Disability Action Northern Ireland 16 November 2022

Public access to Inquiry proceedings

¶A1.16. In keeping with its public nature and the Chair's commitment to conduct the Inquiry in as open and transparent a manner as possible, arrangements were made for the hearings to be accessible to all who wished to follow them. The hearings were broadcast via livestream on the Inquiry's website or its YouTube channel (where they remain accessible) and members of the public were able to watch the hearings in person.²²²² 'Resilience and preparedness (Module 1) – public hearings', UK Covid-19 Inquiry (https://covid19.public-inquiry.uk/hearings/resilience-and-preparedness; https://www.youtube.com/@UKCovid-19Inquiry/videos)

¶A1.17. Across the four modules, there were a total of 53 Core Participants (with some designated in more than one module).

Disclosure to Core Participants and publication of materials

¶A1.18. The Inquiry's approach to documents is set out in its Protocol on Documents, which explains key principles for the delivery of documents to the Inquiry, including requests for documents or witness statements pursuant to rule 9 of the Inquiry Rules

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¶2006.²³²³ 'Protocol on Documents', UK Covid-19 Inquiry, 29 July 2022 (https://covid19.public-inquiry.uk/documents/protocol-on-documents); Inquiry Rules 2006, Rule 9 (https://www.legislation.gov.uk/uksi/2006/1838/article/9/made) This should be read with the Inquiry's Protocol on the Redaction of

¶Documents, which details the approach to the redaction of documents for the purposes of both disclosure to Core Participants and publication.²⁴²⁴ 'Inquiry Protocol on the Redaction of Documents', UK Covid-19 Inquiry, 18 October 2022 (https://covid19.public-inquiry.uk/documents/inquiry-protocol-on-the-redaction-of-documents)

¶A1.19. In Modules 2, 2A, 2B and 2C, the Inquiry issued 899 requests for evidence to 567 organisations and individuals. It received and considered 634 witness statements and 306,867 documents, containing more than 2 million pages. Of these documents, 182,535 were disclosed to Core Participants. Relevant material is published on the Inquiry's website.²⁵²⁵ 'Documents', UK Covid-19 Inquiry, no date (https://covid19.public-inquiry.uk/documents)

¶Table 10: Summary of evidence requested and obtained in Modules 2, 2A, 2B and 2C

¶Module 2 Module 2A Module 2B Module 2C Total

Requests for evidence 467 177 163 92 — 899

¶issued by the Inquiry

Witness statements received 189 195 156 94 — 634

¶by the Inquiry Number of documents 108,911 54,838 44,147 98,971 306,867 received by the Inquiry Pages of evidence received 746,243 482,307 354,253 594,508 2,177,311 by the Inquiry Documents disclosed to 56,308 42,266 32,408 51,553 182,535 Core Participants

¶A1.20. The Inquiry discloses all witness statements and documents it considers relevant to Core Participants in full, subject to any redactions applied in accordance with the Inquiry's Protocol on the Redaction of Documents.²⁶²⁶ 'Inquiry Protocol on the Redaction of Documents', UK Covid-19 Inquiry, 18 October 2022 (https://covid19.public-inquiry.uk/documents/inquiry-protocol-on-the-redaction-of-documents) To comply with section 18 of the Inquiries Act 2005, the Chair is taking reasonable steps to ensure that members of the public are able to view documents provided to the Inquiry and attend Inquiry hearings.²⁷²⁷ Inquiries Act 2005 (https://www.legislation.gov.uk/ukpga/2005/12/contents) All documents shown on screen during the course of the hearings appear in the YouTube recording of the evidence and are published on the Inquiry's website at the end of each day. The witness statements of those who give evidence each day are also published in full. Since the conclusion of the hearings, the Chair has granted permission for the publication of further materials, including those referenced within this Report, where she has been satisfied it is necessary to do so.²⁸²⁸ 'Documents', UK Covid-19 Inquiry, no date (https://covid19.public-inquiry.uk/documents)

¶A1.21. In the event of an objection to the disclosure or publication of relevant material, an application must be made to the Chair for a restriction order in accordance with section 19 of the Inquiries Act 2005, following the Inquiry's Protocol on Applications for Restriction Orders.²⁹²⁹ Inquiries Act 2005, section 19 (https://www.legislation.gov.uk/ukpga/2005/12/section/19); 'Inquiry Protocol on Applications for Restriction Orders', UK Covid-19 Inquiry, 18 October 2022 (https://covid19.public-inquiry.uk/documents/inquiry-protocol-on- applications-for-restriction-orders) The Chair issued the following restriction orders:

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in Module 2, orders dated 1 November 2023, 20 November 2023 and 14 December 2023 concerning the inadvertent publication of irrelevant and sensitive material, private medical information relating to a witness and redacted material respectively;³⁰³⁰ 'Restriction Order', UK Covid-19 Inquiry, 1 November 2023 (https://covid19.public-inquiry.uk/documents/restriction-order-issued- by-the-chair-of-the-uk-covid-19-inquiry-dated-1-11-2023); 'Restriction Order', UK Covid-19 Inquiry, 20 November 2023 (https://covid19.public-inquiry.uk/documents/restriction-order-issued-by-the-chair-of-the-uk-covid-19-inquiry-regarding-the- publication-of-information-regarding-simon-case-dated-20-11-2023); 'Restriction Order', UK Covid-19 Inquiry, 14 December 2023 (https://covid19.public-inquiry.uk/documents/module-2-general-restriction-order-dated-14-december-2023)Show full note
in Module 2A, orders dated 6 December 2023 and 23 February 2024 concerning private medical information relating to an individual and redacted material respectively;³¹³¹ 'Restriction Order', UK Covid-19 Inquiry, 6 December 2023 (https://covid19.public-inquiry.uk/documents/restriction-order-issued- by-the-chair-of-the-uk-covid-19-inquiry-regarding-the-publication-of-information-regarding-dr-catherine-calderwood- dated-12-12-2023); 'Restriction Order', UK Covid-19 Inquiry, 23 February 2024 (https://covid19.public-inquiry.uk/documents/module-2a- general-restriction-order-dated-123-february-2024)Show full note
in Module 2B, orders dated 1 March 2024 and 14 March 2024 concerning redacted material and the inadvertent publication of irrelevant and sensitive material respectively; and³²³² 'Restriction Order', UK Covid-19 Inquiry, 1 March 2024 (https://covid19.public-inquiry.uk/documents/restriction-order-issued-by- the-chair-of-the-uk-covid-19-inquiry-dated-01-03-2024); 'Restriction Order', UK Covid-19 Inquiry, 14 March 2024 (https://covid19.public-inquiry.uk/documents/module-2b-general-restriction-order-dated-14-march-2024)
in Module 2C, one order dated 16 May 2024 concerning redacted material.³³³³ 'Restriction Order', UK Covid-19 Inquiry, 16 May 2024 (https://covid19.public-inquiry.uk/documents/module-2c-general-restriction- order-dated-16-may-2024)

The instruction of expert witnesses

¶A1.22. To assist the Inquiry, groups of scientific and other experts were appointed, covering a range of different topics and views.

¶A1.23. Fourteen expert witnesses were appointed jointly by the Inquiry in Modules 2, 2A, 2B and 2C in relation to a number of topics, including political and administrative decision-making, data, devolution and inequalities.

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¶Table 11: Expert witnesses

¶Topic Expert(s) appointed Expert report Devolution and the Professor Ailsa Henderson (Professor of INQ000269372 UK's response to Political Science at the University of Edinburgh) Covid-19 The use of data Gavin Freeguard (Data consultant) INQ000260629 Political and Alex Thomas (Programme Director at the INQ000236243 administrative Institute for Government) decision-making Oxford COVID-19 Professor Thomas Hale (Professor of Public INQ000257925 Government Policy at the University of Oxford) Response Tracker Ethnicity, inequality Professor James Nazroo (Professor of INQ000280057 and structural racism Sociology at the University of Manchester)

Professor Laia Bécares (Professor of Social Science and Health at King's College London)

¶Inequality, later life Professor James Nazroo (Professor of INQ000280058 and ageism Sociology at the University of Manchester) Pre-existing Professor Laia Bécares (Professor of Social INQ000280059 inequalities Science and Health at King's College London) experienced by LGBTQ+ groups Structural inequalities Professor Nicholas Watson (Chair of Disability INQ000280067 and disability Studies and Director of the Centre for

Disability Research at the University of Glasgow)

Professor Tom Shakespeare CBE (Professor of Disability Research at the London School of Hygiene & Tropical Medicine)

¶Child health Professor David Taylor-Robinson (Professor of INQ000280060 inequalities Public Health and Policy at the University of

¶Liverpool) Structural inequalities Dr Clare Wenham (Associate Professor of INQ000280066 and gender Global Health Policy at the London School of Economics) Long Covid Professor Chris Brightling (Clinical Professor INQ000280198

in Respiratory Medicine at the University of Leicester)

Dr Rachael Evans (Clinical Associate Professor and Honorary Consultant Respiratory Physician at the University of Leicester)

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¶A1.24. In Modules 2A, 2B and 2C, additional experts were appointed in relation to decision‑making structures and processes in each respective nation.

¶Table 12: Modules 2A, 2B and 2C additional expert witnesses

¶Topic Expert(s) appointed Expert report Scottish Government Professor Paul Cairney (Professor of Politics INQ000274154 core decision-making and Public Policy at the University of Stirling) and political governance Welsh Government Professor Daniel Wincott (Professor of Law and INQ000411927 core political and Society at Cardiff University) administrative decision-making Northern Ireland Professor Ann-Marie Gray (Professor of Social INQ000472398 Executive core Policy at Ulster University) decision-making and political governance Professor Karl O'Connor (Professor of Public

Administration and Public Policy at Ulster University)

Witnesses at public hearings

¶A1.25. Witnesses are invited by the Inquiry to provide a statement if they have evidence

relevant to a particular module. They give evidence under oath or affirmation and are questioned by Counsel to the Inquiry. Counsel to Core Participants can also ask questions with the Chair's permission pursuant to rule 10 of the Inquiry Rules.

¶A1.26. At its public hearing in Module 2 between 3 October and 14 December 2023 and

on 23 May 2024, the Inquiry heard evidence from 77 witnesses, including bereaved groups, scientific advisers, government ministers, officials and charities. The honours accorded to individuals in this appendix are those that had been awarded by the time they gave evidence to the Inquiry.

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¶Table 13: Module 2 witnesses from whom the Inquiry heard evidence

¶Witness (organisation) Date of evidence Joanna Goodman (co-founder of Covid-19 Bereaved Families for 4 October 2023 Justice) Dr Alan Wightman (Scottish Covid Bereaved) 4 October 2023 Anna-Louise Marsh-Rees (co-leader of Covid-19 Bereaved Families 4 October 2023 for Justice Cymru) Catriona Myles (member of Northern Ireland Covid-19 Bereaved 5 October 2023 Families for Justice) Professor James Nazroo (Professor of Sociology at the University 5 October 2023 of Manchester) Professor Philip Banfield (Chair of the British Medical Association UK 5 October 2023 council from July 2022) Caroline Abrahams (Charity Director at Age UK) 5 October 2023 Professor David Taylor-Robinson (Professor of Public Health and 6 October 2023 Policy at the University of Liverpool) Anne Longfield CBE, later Baroness Longfield (Children's 6 October 2023 Commissioner for England from March 2015 to February 2021) Kate Bell (Assistant General Secretary of the Trades Union Congress 6 October 2023 from December 2022) Ade Adeyemi MBE (Joint Secretary of the Federation of Ethnic 6 October 2023 Minority Healthcare Organisations) Dr Clare Wenham (Associate Professor of Global Health Policy at the 6 October 2023 London School of Economics) Rebecca Goshawk (Head of Public Affairs and Partnerships at 6 October 2023 Solace Women's Aid) Professor Tom Shakespeare CBE (Professor of Disability Research at 9 October 2023 the London School of Hygiene & Tropical Medicine) Professor Nicholas Watson (Chair of Disability Studies and Director 9 October 2023 of the Centre for Disability Research at the University of Glasgow) Kamran Mallick (Chief Executive of Disability Rights UK) 9 October 2023 Professor Laia Bécares (Professor of Social Science and Health at 9 October 2023 King's College London) Professor Ailsa Henderson (Professor of Political Science at the 9 October 2023 University of Edinburgh) Gus O'Donnell, The Lord O'Donnell GCB (Cabinet Secretary and 10 October 2023 Head of the Civil Service from August 2005 to December 2011) Professor Sir Ian Diamond (UK National Statistician from October 10 October 2023 2019) Gavin Freeguard (Data consultant) 10 October 2023

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¶Witness (organisation) Date of evidence Professor Kamlesh Khunti CBE (Professor of Primary Care Diabetes 11 October 2023 and Vascular Medicine at the University of Leicester) Professor Thomas Hale (Professor of Public Policy at the University 11 October 2023 of Oxford) Professor Sir Mark Walport (Government Chief Scientific Adviser 11 October 2023 from April 2013 to September 2017) Dr Stuart Wainwright OBE (Director of the Government Office for 12 October 2023 Science from December 2019 to June 2023) Professor Graham Medley OBE (Professor of Infectious Disease 12 October 2023 Modelling at the London School of Hygiene & Tropical Medicine) Professor Matthew Keeling OBE (Professor of Maths and Life 12 October 2023 Sciences at the University of Warwick) Alex Thomas (Programme Director at the Institute for Government) 13 October 2023 Professor Chris Brightling (Clinical Professor in Respiratory Medicine 13 October 2023 at the University of Leicester) Dr Rachael Evans (Clinical Associate Professor and Honorary 13 October 2023 Consultant Respiratory Physician at the University of Leicester) Ondine Sherwood (founding member of Long Covid SOS) 13 October 2023 Professor Mark Woolhouse (Professor of Infectious Disease 16 October 2023 Epidemiology at the University of Edinburgh) Professor Anthony Costello (Professor of Global Health and 16 October 2023 Sustainable Development at University College London) Professor Andrew Hayward (Professor of Infectious Disease 16 October 2023 Epidemiology and Inclusion Health at University College London) Professor Steven Riley (Professor of Infectious Disease Dynamics at 17 October 2023 Imperial College London) Professor Neil Ferguson OBE (Mathematical Epidemiologist at 17 October 2023 Imperial College London) Professor James Rubin (Professor of Psychology and Emerging 18 October 2023 Health Risks at King's College London, Chair of the Scientific Pandemic Insights Group on Behaviours (SPI-B) from February 2020 to June 2021) Professor Lucy Yardley OBE (Professor of Health Psychology at the 18 October 2023 University of Bristol and the University of Southampton) Professor Sir Peter Horby (Professor of Emerging Infectious Diseases 18 October 2023 and Global Health at the University of Oxford) Professor Catherine Noakes OBE (Professor of Environmental 19 October 2023 Engineering at the University of Leeds) Professor John Edmunds OBE (Professor of Infectious Disease 19 October 2023 Modelling at the London School of Hygiene & Tropical Medicine)

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¶Witness (organisation) Date of evidence Professor Carl Heneghan (Professor of Evidence-Based Medicine at 19 October 2023 the University of Oxford) Martin Reynolds CMG (Principal Private Secretary to the Prime 30 October 2023 Minister from October 2019 to February 2022) Imran Shafi (Private Secretary to the Prime Minister for public 30 October 2023 services from March 2018 to March 2021) Lee Cain (Director of Communications at 10 Downing Street from 31 October 2023 July 2019 to November 2020) Dominic Cummings (Adviser to the Prime Minister from July 2019 to 31 October 2023 November 2020) Helen MacNamara CB (Deputy Cabinet Secretary from January 2019 1 November 2023 to February 2021) Professor David Halpern CBE (Chief Executive of the Behavioural 1 November 2023 Insights Team from 2014) Sir Simon Stevens, The Lord Stevens of Birmingham (Chief Executive 2 November 2023 of NHS England from April 2014 to July 2021) Sir Christopher Wormald KCB (Permanent Secretary to the 2 November 2023 Department of Health and Social Care from May 2016 to December 2024) Professor Yvonne Doyle CB (Medical Director at Public Health 2 November 2023 England from June 2019 to October 2021, National Medical Director for Public Health at NHS England from October 2021 to March 2023) Clare Lombardelli (Chief Economic Adviser at the Treasury from April 6 November 2023 2018 to April 2023) Stuart Glassborow (Deputy Principal Private Secretary to the Prime 6 November 2023 Minister from May 2019 to May 2022) Dr Ben Warner (Special Adviser to the Prime Minister from 6 November 2023 December 2019 to May 2021) Simon Ridley (Director General for Policy and Strategy on the 7 November 2023 Covid-19 Taskforce from May 2020 to July 2021, Head of the Covid-19 Taskforce from July 2021 to March 2022) Edward Udny-Lister, The Rt Hon the Lord Udny-Lister (Chief 7 November 2023 Strategic Adviser to the Prime Minister from July 2019 to November 2020, Chief of Staff to the Prime Minister from November 2020 to February 2021) Sir Mark Sedwill, The Lord Sedwill KCMG (Cabinet Secretary and 8 November 2023 Head of the Civil Service from October 2018 to September 2020) Justin Tomlinson MP (Minister for Disabled People, Health and Work 8 November 2023 from January 2020 to September 2021) Martin Hewitt CBE QPM (Chair of the National Police Chiefs' Council 9 November 2023 from March 2019 to April 2023)

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¶Witness (organisation) Date of evidence The Rt Hon Dame Priti Patel MP (Secretary of State for the Home 9 November 2023 Department from July 2019 to September 2022) Jun Pang (Policy and Campaigns Officer at the National Council for 9 November 2023 Civil Liberties (Liberty)) Professor Sir Patrick Vallance, later The Rt Hon the Lord Vallance of 20 November 2023 Balham KCB (Government Chief Scientific Adviser from April 2018 to March 2023) Professor Sir Christopher Whitty KCB (Chief Scientific Adviser for the 21 November 2023; Department of Health and Social Care from January 2016 to August 22 November 2023 2021, Interim Government Chief Scientific Adviser from 2017 to 2018, Chief Medical Officer for England from October 2019) Professor Sir Jonathan Van-Tam MBE (Deputy Chief Medical Officer 22 November 2023 for England from October 2017 to March 2022) Professor Dame Angela McLean DBE (Chief Scientific Adviser to the 23 November 2023 Ministry of Defence from 2019 to 2023, Government Chief Scientific Adviser from April 2023) The Rt Hon Kemi Badenoch MP (Minister for Equalities from 23 November 2023 February 2020 to July 2022) Sadiq Khan, later Sir Sadiq Khan (Mayor of London from May 2016) 27 November 2023 Andy Burnham (Mayor of Greater Manchester from May 2017) 27 November 2023 Steve Rotheram (Mayor of the Liverpool City Region from May 2017) 27 November 2023 The Rt Hon Michael Gove MP, later Lord Gove (Chancellor of the 28 November 2023 Duchy of Lancaster from July 2019 to September 2021, Minister for the Cabinet Office from February 2020 to September 2021) Professor Dame Jenny Harries DBE (Deputy Chief Medical Officer 28 November 2023; for England from July 2019 to March 2021, Chief Executive of the UK 29 November 2023 Health Security Agency from April 2021) The Rt Hon Sajid Javid MP, later Sir Sajid Javid (Secretary of State for 29 November 2023 Health and Social Care from June 2021 to July 2022) The Rt Hon Dominic Raab MP (Secretary of State for Foreign and 29 November 2023 Commonwealth Affairs and First Secretary of State from July 2019 to September 2021) The Rt Hon Matt Hancock MP (Secretary of State for Health and 30 November 2023; Social Care from July 2018 to June 2021) 1 December 2023 The Rt Hon Boris Johnson MP (Prime Minister from July 2019 to 6 December 2023 September 2022) The Rt Hon Rishi Sunak MP (Chancellor of the Exchequer from 11 December 2023 February 2020 to July 2022) Simon Case CVO, later Lord Case (Director General at the Cabinet 23 May 2024 Office from April to May 2020, Permanent Secretary at 10 Downing Street from May to September 2020, Cabinet Secretary and Head of the Civil Service from September 2020 to December 2024)

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¶A1.27. At its public hearing in Module 2A, which commenced on 16 January 2024 and

ended on 1 February 2024, the Inquiry heard evidence from 31 witnesses, including those from impact and bereaved groups, Scottish Government civil servants, former and current ministers, and scientific advisers.

¶Table 14: Module 2A witnesses from whom the Inquiry heard evidence

¶Witness (organisation) Date of evidence Jane Morrison (lead member of Scottish Covid Bereaved) 17 January 2024 Rozanne Foyer (General Secretary of Scottish Trades Union Congress 17 January 2024 from February 2020) Dr Jim Elder-Woodward OBE (Chair of Inclusion Scotland) 17 January 2024 Roger Halliday (Chief Statistician for Scotland from 2011 to April 2022, 17 January 2024 Joint Head of the Covid-19 Analysis Division from March 2020) Scott Heald (Director for Data and Digital Innovation at Public Health 17 January 2024 Scotland from June 2021) Dr Audrey MacDougall (Deputy Director of the Covid-19 Analysis 17 January 2024 Division from March 2020 to November 2021) Professor Paul Cairney (Professor of Politics and Public Policy at the 18 January 2024 University of Stirling) Dr Donald Macaskill (Chief Executive of Scottish Care) 18 January 2024 Nicola Dickie (Director of People Policy at the Convention of Scottish 18 January 2024 Local Authorities) Lesley Fraser (Director General for Organisational Design and 19 January 2024 Operations in the Scottish Government from July 2019 to March 2021) Ken Thomson CB (Director-General for Strategy and External Affairs in 19 January 2024 the Scottish Government from December 2011 to September 2023) Dr Jim McMenamin (Head of Infections Service and Strategic Incident 19 January 2024 Director for Covid-19 at Public Health Scotland) Professor Nick Phin (Director of Public Health Science at Public Health 19 January 2024 Scotland from January 2021) Caroline Lamb (Director-General for Health and Social Care in the 22 January 2024 Scottish Government and Chief Executive of NHS Scotland from January 2021) Professor Sir Gregor Smith (Interim Chief Medical Officer for Scotland 22 January 2024 from April to December 2020, Chief Medical Officer for Scotland from December 2020) Professor Sheila Rowan CBE (Chief Scientific Adviser for Scotland from 22 January 2024 June 2016 to June 2021) Professor Jason Leitch CBE (National Clinical Director and Co-Director 23 January 2024 of the Directorate for Healthcare Quality and Improvement in the Scottish Government from January 2015)

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¶Witness (organisation) Date of evidence Professor Devi Sridhar (Professor of Global Public Health at the 23 January 2024 University of Edinburgh) Professor Andrew Morris CBE (Professor of Medicine at the University 23 January 2024 of Edinburgh) Professor Mark Woolhouse OBE (Professor of Infectious Disease 24 January 2024 Epidemiology at the University of Edinburgh) Professor Stephen Reicher (Professor of Psychology at the University 24 January 2024 of St Andrews) Dr Pablo Grez Hidalgo (Lecturer in Public Law at the University of 24 January 2024 Strathclyde) Professor Susan McVie OBE (Professor of Quantitative Criminology at 24 January 2024 the University of Edinburgh) Elizabeth Lloyd (Chief of Staff to the First Minister of Scotland from 25 January 2024 January 2015 to March 2021, Strategic Political and Policy Adviser to the First Minister of Scotland from August 2021 to March 2023) Humza Yousaf MSP (Cabinet Secretary for Justice from June 2018 to 25 January 2024 May 2021, Cabinet Secretary for Health and Social Care in the Scottish Government from May 2021 to March 2023) The Rt Hon Michael Gove MP, later Lord Gove (Chancellor of the Duchy 29 January 2024 of Lancaster from July 2019 to September 2021, Minister for the Cabinet Office from February 2020 to September 2021) Jeane Freeman OBE (Cabinet Secretary for Health and Sport in the 29 January 2024 Scottish Government from June 2018 to May 2021) Kate Forbes MSP (Cabinet Secretary for Finance in the Scottish 30 January 2024 Government from February 2020 to May 2021, Cabinet Secretary for Finance and the Economy from May 2021 to March 2023) John Swinney MSP (Deputy First Minister of Scotland from November 30 January 2024 2014 to March 2023, Cabinet Secretary for Covid Recovery from May 2021 to March 2023) The Rt Hon Nicola Sturgeon MSP (First Minister of Scotland from 31 January 2024 November 2014 to March 2023) The Rt Hon Alister Jack MP, later Lord Jack of Courance (Secretary of 1 February 2024 State for Scotland from July 2019 to July 2024)

¶A1.28. At its public hearing in Module 2B, which commenced on 27 February 2024 and

ended on 14 March 2024, the Inquiry heard evidence from 31 witnesses, including from bereaved groups, Welsh Government ministers, officials and scientific advisers.

289

¶Table 15: Module 2B witnesses from whom the Inquiry heard evidence

¶Witness (organisation) Date of evidence Elizabeth Grant (co-leader of Covid-19 Bereaved Families for Justice 28 February 2024 Cymru) Amanda Provis (member of Covid-19 Bereaved Families for Justice 28 February 2024 Cymru) Professor Emmanuel Ogbonna (Professor of Management and 28 February 2024 Organization at Cardiff University) Professor Debbie Foster (Professor of Employment Relations and 28 February 2024 Diversity at Cardiff University) Helena Herklots CBE (Older People's Commissioner for Wales from 28 February 2024 August 2018 to August 2024) Professor Sally Holland (Children's Commissioner for Wales from April 28 February 2024 2015 to April 2022) Professor Daniel Wincott (Professor of Law and Society at Cardiff 29 February 2024 University) Professor Sir Ian Diamond (UK National Statistician from October 29 February 2024 2019) Stephanie Howarth (Chief Statistician and Head of Profession for 29 February 2024 statistics in the Welsh Government) Dr Robert Hoyle (Head of Science at the Welsh Government Office for 29 February 2024 Science from May 2019) Dr Chris Williams (Consultant Epidemiologist at Public Health Wales) 1 March 2024 Dr Roland Salmon (Director of the Communicable Disease 1 March 2024 Surveillance Centre (Wales) from 1998 to 2013) Professor Ann John (Clinical Professor of Public Health and Psychiatry 1 March 2024 at Swansea University) Professor Michael Gravenor (Professor of Biostatistics and 1 March 2024 Epidemiology at Swansea University) Sir Frank Atherton (Chief Medical Officer for Wales from August 2016) 4 March 2024 Dr Rob Orford (Chief Scientific Adviser (Health) for Wales from 4 March 2024 January 2017) Dame Shan Morgan DCMG (Permanent Secretary to the Welsh 4 March 2024 Government from February 2017 to October 2021) Dr Andrew Goodall CBE (Director General of Health and Social 5 March 2024 Services in the Welsh Government and Chief Executive of NHS Wales from June 2014 to November 2021, Permanent Secretary to the Welsh Government from September 2021) Dr Tracey Cooper (Chief Executive of Public Health Wales from 5 March 2024 June 2014)

290

¶Witness (organisation) Date of evidence Dr Quentin Sandifer OBE (Executive Director for Public Health 6 March 2024 Services and Medical Director at Public Health Wales from October 2012 to December 2020) Shavanah Taj (General Secretary of the Wales Trades Union Congress) 6 March 2024 Dr Chris Llewelyn (Chief Executive of the Welsh Local Government 6 March 2024 Association from January 2019) Reg Kilpatrick (Director in the Welsh Government with responsibility 6 March 2024 for civil contingencies from 2013, Director General for Covid Coordination from September 2020) Jane Runeckles (Special Adviser to the First Minister of Wales from 7 March 2024 November 2016) Toby Mason (Head of Strategic Communications in the Welsh 7 March 2024 Government from January 2014) The Rt Hon Simon Hart MP, later Lord Hart of Tenby (Secretary of 7 March 2024 State for Wales from December 2019 to July 2022) The Rt Hon Vaughan Gething MS (Minister for Health and Social 11 March 2024 Services in the Welsh Government from May 2016 to May 2021) Eluned Morgan MS, Baroness Morgan of Ely DBE (Minister for 12 March 2024 International Relations and the Welsh Language from December 2018 to October 2020, Minister for Mental Health, Wellbeing and the Welsh Language from October 2020 to May 2021, Minister for Health and Social Services in the Welsh Government from May 2021) Rebecca Evans MS (Minister for Finance in the Welsh Government 12 March 2024 from December 2018) Jeremy Miles MS (Counsel General for Wales from December 2017 12 March 2024 to May 2021) The Rt Hon Mark Drakeford MS (First Minister of Wales from 13 March 2024 December 2018 to March 2024)

¶A1.29. At its public hearing in Module 2C, which commenced on 30 April 2024 and ended on 16 May 2024, the Inquiry heard evidence from 27 witnesses, including those from impact and bereaved groups, the Northern Ireland Civil Service, former and current ministers, scientific advisers and law enforcement.

291

¶Table 16: Module 2C witnesses from whom the Inquiry heard evidence

¶Witness (organisation) Date of evidence Marion Reynolds (Northern Ireland Covid-19 Bereaved Families for 30 April 2024 Justice) Nuala Toman (Head of Innovation and Impact at Disability Action 30 April 2024 Northern Ireland) Eddie Lynch (Commissioner for Older People for Northern Ireland from 1 May 2024 June 2016) Gerry Murphy (Assistant General Secretary of the Irish Congress of 1 May 2024 Trade Unions from December 2022) Sir David Sterling KCB (Head of the Northern Ireland Civil Service and 1 May 2024 Permanent Secretary to The Executive Office from June 2017 to August 2020) Chris Stewart (Director at The Executive Office of Northern Ireland) 2 May 2024 Dr Joanne McClean (Director of Public Health at the Public Health 2 May 2024 Agency from September 2022) Dr Jenny Pyper (Interim Head of the Northern Ireland Civil Service from 2 May 2024 December 2020 to August 2021) Karen Pearson (Director of Covid-19 Strategy and Recovery, Civil 3 May 2024 Contingencies and Programme for Government at The Executive Office from March 2020) Jayne Brady MBE (Head of the Northern Ireland Civil Service from 3 May 2024 September 2021) Richard Pengelly CB (Permanent Secretary to the Department of Health 7 May 2024 (Northern Ireland) from July 2014 to April 2022) Professor Ian Young (Chief Scientific Adviser to the Department of 7 May 2024 Health (Northern Ireland) from November 2015) Peter Weir, Lord Weir of Ballyholme (Minister for Education in Northern 8 May 2024 Ireland from May 2016 to March 2017 and from January 2020 to June 2021) Diane Dodds MLA (Minister for the Economy in Northern Ireland from 8 May 2024 January 2020 to June 2021) Deirdre Hargey MLA (Minister for Communities in Northern Ireland 8 May 2024 from January to June 2020 and from December 2020 to October 2022) Carál Ní Chuilín MLA (Minister for Communities in Northern Ireland from 8 May 2024 June to December 2020) Edwin Poots MLA (Minister for Agriculture, Environment and Rural 9 May 2024 Affairs in Northern Ireland from January 2020 to October 2022) Naomi Long MLA (Minister for Justice in Northern Ireland from January 9 May 2024 2020 to October 2022)

292

¶Witness (organisation) Date of evidence The Rt Hon Sir Brandon Lewis CBE MP (Secretary of State for Northern 9 May 2024 Ireland from February 2020 to July 2022) Professor Sir Michael McBride (Chief Medical Officer for Northern 10 May 2024 Ireland from September 2006) Robin Swann MLA (Minister of Health for Northern Ireland from January 13 May 2024 2020 to October 2022 and from February to May 2024) Professor Ann-Marie Gray (Professor of Social Policy at Ulster 13 May 2024 University) Professor Karl O'Connor (Professor of Public Administration and Public 13 May 2024 Policy at Ulster University) Michelle O'Neill MLA (deputy First Minister of Northern Ireland from 14 May 2024 January 2020 to February 2022) Arlene Foster, The Rt Hon the Baroness Foster of Aghadrumsee DBE 15 May 2024 (First Minister of Northern Ireland from January 2016 to January 2017 and from January 2020 to June 2021) Alan Todd (Assistant Chief Constable, the Police Service of Northern 15 May 2024 Ireland from 2016 to July 2023) Sue Gray, later Baroness Gray of Tottenham (Permanent Secretary to 16 May 2024 the Department of Finance (Northern Ireland) from April 2018 to May 2021, Second Permanent Secretary to the Cabinet Office from May 2021 to March 2023)

The Inquiry team

¶A1.30. The Chair was greatly assisted in Modules 2, 2A, 2B and 2C by the Inquiry team of counsel, solicitors, paralegals and other members of the Secretariat.

293

¶Table 17: Modules 2, 2A, 2B and 2C Counsel teams

¶Role Name Module 2 Lead Counsel Hugo Keith KC, Andrew O'Connor KC Junior Counsel Dermot Keating KC, Joanne Cecil KC, Lara McCaffrey, Caragh

Nimmo, Gareth Rhys, Meg Cochrane, Amrit Dhanoa, Hannah Gardiner

¶Module 2A Lead Counsel Jamie Dawson KC Junior Counsel Usman Tariq KC, Heather Arlidge, Bethany Condron, Stephanie

¶Painter, Andrew McWhirter Module 2B Lead Counsel Tom Poole KC Junior Counsel Kate Wilson, Laura Paisley, Louise Cowen, Abimbola Johnson,

¶Helena Spector, Lauren Hitchman Module 2C Lead Counsel Clair Dobbin KC Junior Counsel Nick Scott, Leah Treanor, Shirley Tang, Amrit Dhanoa