Simplify Emergency Preparedness Structures

2.1 The Welsh Government agrees there is a greater need for improved governance structures to enable Ministerial and senior official oversight of civil contingencies in Wales. Much work has already been undertaken to provide clear structures for decision-making and clarity on roles and responsibilities both within the Welsh Government as well as separately within our external governance structures with our resilience partners.

The Scottish Government accepts this recommendation. We accept the need for simplified core structures to prepare for and build resilience to whole system civil emergencies. To achieve this, our Cabinet will consider two papers per year on resilience preparations. We have already created a new single structure of senior officials to oversee the Scottish Government’s preparedness and resilience work, which first met in September 2024.

We recognise the importance of having uncomplicated, coordinated structures across the Scottish Government which are responsible for whole system civil emergency preparedness and resilience.

Resilience matters are often challenging and cross-cutting and require attention from the most senior levels of government. The Cabinet is the highest decision-making body in the Scottish Government, chaired by the First Minister and comprised of all Cabinet Secretaries. It is the main forum for ministers to consider and make key decisions on the strategic priorities and policies of the government to achieve its objectives. Cabinet covers our Programme for Government, which sets out the government’s commitments over the coming year.

The Cabinet will consider two papers per year relating to government action on whole system civil emergencies. This means that whole system civil emergency preparedness and resilience will be considered at the highest level of government on a regular basis. Considering these matters at Cabinet supports the overall aim of simplifying the layers of responsibility for resilience and ensures that the resilience landscape does not become cluttered.

A Future Pandemic Preparedness Ministerial Oversight Group (MOG), co-chaired by the Cabinet Secretary for Health and Social Care and Cabinet Secretary for Justice and Home Affairs, with representation from across Ministerial portfolios has been established. The MOG will oversee the development and implementation of an updated pandemic preparedness framework, including responding to lessons learned from the Covid-19 pandemic. The MOG will receive and commission advice from a supporting Programme Board on matters such as capabilities assessments, resourcing and policy choices about integration with UK and international activities. The direction and lifespan of the MOG will be directed by its members. The MOG will meet on a six-monthly basis and will meet for the first time during early 2025.

The supporting Future Pandemic Preparedness Programme Board oversees the strategic planning, coordination and delivery of work to enhance the Scottish Government’s readiness for future pandemics and ensure a consistent approach to improved pandemic preparedness across the Scottish Government. The Programme Board is co-chaired by the Director for Population Health and the Director for Strategy and Delivery and comprises of representatives from each business area identified as core components to support pandemic preparedness, the Chief Medical Officer and outside expertise (as required). The Programme Board will also support work around data, research and modelling for future pandemics – including agreement of a framework setting out processes for sharing of analytical resource across the Scottish Government for rapid deployment in the event of a future pandemic.

A Cross Government Delivery Group has been established and will work to identify gaps, improve existing plans, develop new plans (as needed) and foster cross-government collaboration, to support the delivery of this programme of work.

We have also established a new group of senior officials within the Scottish Government to lead and coordinate work on preparedness for and resilience to a wide range of civil emergencies. This group will not be working on a ‘Lead Government Department’ model basis, but rather looking across government to ensure preparedness is joined up and holistic. Each will have clear responsibilities related to civil contingencies risks and impacts and will drive and closely monitor work across the organisation to understand, mitigate and plan for these risks. Work is already underway to bring in a supporting programme of risk and impact-based desktop exercises, the need for which will be driven by identified planning gaps.

These officials will come together quarterly as the Crisis Preparation Oversight Group (CPOG), chaired by the Director General for Strategy and External Affairs. Here a broader overview of cross-government preparedness and structures will be considered to drive a process of continual improvement and simplification, and to gather evidence to inform the twice-yearly briefings to Cabinet. The CPOG met for the first time in September 2024 and will meet quarterly going forward, with a strong focus on continuous improvement.

The work of the CPOG will be connected to the work of the Future Pandemic Preparedness Programme Board – as these processes are directly linked. The Future Pandemic Preparedness Programme supports the fulfilment of the objectives of the CPOG.

We are also already closely engaged in four nations structures on resilience. We attend the monthly Resilience Steering Board (RSB) which brings together the devolved governments and the UK Government Departments to oversee and implement policy on civil emergency preparedness and resilience.

The Northern Ireland Executive (the Executive) recognises the need for Ministerial and senior official oversight of civil contingencies as well as clear structures alongside clarity of roles and responsibilities. We also recognise that the civil contingencies landscape in NI looks complicated when presented in its totality and are grateful to the Inquiry for highlighting this. The Executive, therefore, accept this recommendation in full.

Progress in line with this recommendation has already been made. Following the restoration of the Executive last year, one of the first papers to be considered by the Executive on 29 February 2024 was on civil contingencies arrangements.

It is important to acknowledge that there are different types of emergencies, from those which require a local response to those that require a co-ordinated multi-agency, national or region-wide response. As a result, there are different structures in place to ensure they are responded to appropriately and in a timely manner. The “NI Civil Contingencies Framework – Building Resilience Together” (the Framework), originally published in July 2021, sets out the Northern Ireland arrangements for civil emergencies and identifies the processes involved in preparing for, responding to and recovering from an emergency. The Framework brought together existing protocols and guidance (including the “Guide to Emergency Planning Arrangements”) into one document and is regularly reviewed.

The Framework shows the hierarchy in place to respond to civil emergencies that impact locally or regionally across NI and nationally across the UK. The Framework sets out the NI arrangements for effective civil emergencies management and identifies the processes involved in preparing for, responding to and recovering from an emergency.

There are some differences in process here compared to Great Britain due to the different administrative structures and reflecting the fact that the island of Ireland comprises a single epidemiological unit covered by two legislative jurisdictions. A Memorandum of Understanding (MoU) was agreed between the Departments of Health here and in the Republic of Ireland in April 2020 to underpin and strengthen co-operation on the public health response to the pandemic. The MoU focuses on facilitating co-operation in areas such as public health messaging, research, and evidence base/modelling. The Department of Agriculture Environment and Rural Affairs (DAERA) and the Department of Health (DoH), together with the Public Health Agency (PHA) regularly liaise on zoonotic risks and antimicrobial resistance in respect of the island of Ireland.

In terms of animal health, an all-island single epidemiological unit is respected, and this is factored into discussions at UK level. Arrangements are in place to ensure regular cross-border exercises are completed both at animal health and One Health levels. For example, in the event of an outbreak of epizootic disease in either Northern Ireland or Ireland, it is recognised by DAERA and the Department of Agriculture, Food and Marine (DAFM - the relevant government department in Ireland) that sustained co-operation between both administrations will be essential to reduce the further spread of disease.

On a One Health basis, DAERA is a participant at the Ireland One Health Oversight Commission, a body which was established in 2023 and co-chaired by the Chief Medical and Chief Veterinary Officers from Ireland. It brings together participants from across environment, animal and human health agencies to consider ongoing and emerging risks. It reflects on the ongoing cross-border working group activities between government and academic parties.

In terms of whole-system civil contingencies preparedness and resilience in relation to emergencies that have wide impacts across society, there are many key players, all of whom must understand their roles and responsibilities.

The Inquiry has highlighted that due to the unique constitutional arrangements in place in Northern Ireland, the Executive is a mandatory coalition government, comprising the Ministers from the nine Executive departments, each of which is a separate legal entity. The Executive Office (TEO), therefore, has a role of coordination, not direction, across the departments of the Executive.

The Executive is co-chaired by the First Minister and deputy First Minister and attended by eight departmental Ministers. Subject to their statutory obligation to refer certain categories of matters to the Executive for agreement, individual Ministers have executive authority to determine policy and operational matters within their departments, without the general requirement to observe a collective ‘cabinet position’. The Executive exercises executive authority on behalf of the Northern Ireland Assembly and takes decisions on significant and/or controversial matters and matters which cut across the responsibility of two or more Ministers, which are referred to it by individual Ministers.

Given the potential cross-cutting nature of civil contingencies that may touch upon all aspects of society and therefore on the responsibilities of all Northen Ireland Ministers, the Executive is ideally placed to provide Ministerial oversight of civil contingencies arrangements.

Similarly, the Northern Ireland Civil Service (NICS) Board, which consists of the Permanent Secretaries of all NI departments as well as three non-executive independent members and is chaired by the Head of the Civil Service, is well placed to provide leadership and direction at senior official level.

The Civil Contingencies Group Northern Ireland (CCG(NI)) is the principal strategic civil contingencies preparedness body for the public sector. CCG(NI) comprises senior level membership from all NI departments and key civil contingencies stakeholders.

This recommendation, which presents an opportunity to reset the governance arrangements for civil contingencies from a NICS perspective, has been actioned. Civil contingencies is now a standing agenda item on NICS Board meetings that immediately follow CCG(NI) meetings in March, June and November to facilitate reporting to the Executive. To strengthen Ministerial oversight of civil contingencies arrangements in NI, regular reporting will commence to the Executive for consideration following each CCG(NI) meeting. The Executive will consider this issue following the March 2025 CCG(NI) meeting.

Over the next 12 months, the Executive will strengthen and improve the oversight arrangements already in place and clarify roles and responsibilities within these improved arrangements.

The government agrees that clear governance is needed to build resilience across the UK.

As per the Inquiry’s recommendation, in July 2024, the Prime Minister established a single ministerial committee to oversee action to build medium to long term resilience, capable of making decisions across government. The National Security Council (Resilience) is a Cabinet Committee, chaired by the Chancellor of the Duchy of Lancaster. The Committee oversees action to build medium to long term resilience. The Health Secretary is a standing member of this Committee, in line with the Inquiry’s recommendation. The National Security Council (Resilience) is supported by an official-level committee, in line with the Cabinet Manual.

The government also has a cross-departmental group of senior officials to coordinate and drive implementation of policy on civil emergency preparedness and resilience. The Resilience Steering Board is a Director-level meeting, chaired by the Cabinet Office Head of Resilience, that meets monthly. The Board has a clearly defined purpose to provide collective cross-government leadership on resilience matters, within the core structure provided by the National Security Council (Resilience).

Resilience is a wide ranging and complex function that spans different policy areas, both reserved and devolved. The devolution arrangements in Wales, Scotland and Northern Ireland set out the policy areas that are the responsibility of devolved governments for which they are accountable to devolved legislatures. Risks and emergencies do not recognise borders and it is vital that the four nations across the UK work together to keep communities safe. Senior officials from the devolved governments attend the Resilience Steering Board, to ensure effective understanding and coordination of resilience activity across the whole of the UK. Senior resilience officials across the four nations also meet individually and together on cross-cutting matters with ministerial engagement as needed.

We will look to rationalise and streamline subordinate or supporting groups and committees responsible for whole-system civil emergency preparedness and resilience. Further arrangements to manage whole system risks have been captured later in this response under the relevant recommendations.

Cabinet was provided with a written update on risk, resilience, and preparedness in March 2026, and will continue to receive updates on a regular basis.

In lieu of a meeting, the Ministerial Oversight Group received a written update on the progress of the pandemic preparedness programme in early 2026. The date of the next Ministerial Oversight Group meeting will be set in due course.

The Future Pandemic Preparedness Cross-Government Delivery Group met in June 2026 and the Programme Board is expected to meet in summer 2026. Both these groups form part of the wider Future Pandemic Preparedness programme.

Work has continued to strengthen the role and function of the Crisis Preparation Oversight Programme within the Scottish Government to support the delivery of preparedness activities.

Status: OPEN Introduction The Executive acknowledged the complex civil contingencies landscape and aimed to clarify structures, roles and responsibilities across departments and agencies. Progress update Options for a review of the civil contingencies landscape in NI have been prepared and are under consideration. Officials have concluded their review of the UK Resilience Action Plan and will carefully consider its proposals as we commence our review of the NI Civil Contingencies Framework. Exercise Pegasus enabled a four-nations collaborative simulation of a whole system emergency. Lesson identified at all levels through this exercise will be used to inform efforts to simplify and streamline decision making processes. Civil Contingencies Learning and Development delivery continues to provide an overview of NI Civil Contingencies arrangements at local, regional and national levels as well as an introduction to activation and deactivation procedures. In support of the approach being brought forward by TEO, the NI Executive Departments reviewed civil contingency arrangements in advance of Exercise Pegasus.

The evolving and wide-ranging threats facing the UK and Wales reinforce the need for effective risk management and preparedness and the value of robust emergency response arrangements. The Welsh Government and the responder community work together closely to assess the potential impacts of evolving risks and ensure resilience arrangements flex to reflect the changing landscape.

With the support of the responder community, we have made substantial progress in the last twelve months to modify and strengthen resilience governance, accountability and oversight structures, both within the Welsh Government and for the emergency responder communities.

As set out in our initial response to the inquiry’s report, we now have a dedicated Cabinet meeting each year to consider risks and preparedness (and provide more frequent updates if needed as risks arise). This reflects the interest that all ministers maintain for emergency preparedness and keeps a focus on emergency planning at the highest level of government. We have already established our Welsh Government governance structures, which bring together senior officials.

A review has also been undertaken of the pan-Wales governance arrangements. In May, I chaired the first meeting of the newly reconstituted Wales Resilience Forum. The Wales Resilience Forum, supported by the strengthened Wales Resilience Partnership is joining-up decision-making and delivery, with clear lines of responsibility.

As set out in the Welsh Government’s initial response to the inquiry, the Risk and Preparedness Committee is an important part of the Welsh Government’s governance and oversight arrangements. The Committee, which meets quarterly, brings together directors across the Welsh Government to help ensure resilience structures remain efficient, focused and fit for purpose and takes account of lessons identified from incidents, exercises and an evolving risk profile. The Committee transitions from ‘peacetime’ functions of risk management and preparedness, to crisis response functions providing oversight of coordination arrangements.

Since our initial response, the Committee has met on 3 occasions to discuss and consider proposals on a range of topics including, but not limited to, the Wales Resilience Framework, lessons from the response to Storms Bert and Darragh, evolving cyber and national security threats, preparations for Exercise Pegasus, Critical National Infrastructure resilience, and improvements to data management during emergencies.

Providing support to the Risk and Preparedness Committee and coordinating and driving delivery is the Senior Officials Working Group which meets monthly.

In the light of the Module 1 report, we reviewed these governance arrangements in April 2025, and, as part of our commitment to continued improvement, the purpose and remit of the Committee will be reviewed annually.

I will keep these arrangements under review, but in the light of the actions we have taken, I consider implementation of Recommendation 1 of Module 1 has been completed.

Implementation update for recommendation 1: A simplified structure for whole-system civil emergency preparedness and resilience (updated: June 2025) - recommendation closed

1. As set out in the government’s response to the Module 1 report, the government has established strong and simplified governance of resilience issues. In July 2024, the Prime Minister established the National Security Council (Resilience), a single ministerial committee to oversee action to build medium to long term resilience. The National Security Council (Resilience) is chaired by the Chancellor of the Duchy of Lancaster (CDL).

2. Since the publication of the government’s response, the Cabinet Office and respective Lead Government Departments (LGDs) have worked to refresh and reinvigorate the governance for each catastrophic risk, including co-chairing risk boards where appropriate (further information at recommendation 2). Issues are then escalated for collective decision through the National Security Council (Resilience).