Four Nations Pandemic Structure
COVID-19 Inquiry · Module 2: Core Decision-Making · Issued 20 November 2025 · Addressed to: Cabinet Office
Source — verbatim from the inquiry
●Inquiry recommendation
While intergovernmental relations should be facilitated through COBR in the initial months of any future pandemic, the UK government and devolved administrations should ensure that a specific four-nations structure, concerning pandemic response, is stood up at the same time as the transition away from COBR to nation-specific decision-making structures. This should meet regularly during a pandemic and be attended by all heads of government.
COVID-19 Inquiry, Module 2: Core Decision-Making · 20 Nov 2025 Source PDF →
Published evidence summary
Publicly available evidence relating to this recommendation:
- A review of intergovernmental relations was published jointly by the UK and devolved governments in 2022, establishing structures and ways of working adopted by all four governments.
- Cabinet Office collaborated with devolved governments on operational planning for the COBR-to-taskforce transition in preparation for Exercise Pegasus.
- Devolved government ministers and officials will be invited to COBR and taskforce Cabinet Committee meetings.
- The Exercise Pegasus post-exercise report, expected Winter 2026, has not yet been published.
Response — verbatim from government
●Scottish Government — initial response
No formal response published by this government.
Scottish Government · 20 Nov 2025
●Welsh Government — follow-up
No formal response published by this government.
Welsh Government · 20 Nov 2025
●Northern Ireland Executive — follow-up
No formal response published by this government.
Northern Ireland Executive · 20 Nov 2025
●UK Government — follow-up
The government agrees that a clear four-nations structure is needed during the transition away from COBR (acute crisis response) to an enduring pandemic response to ensure alignment in decision making across the four nations where appropriate.
A review of intergovernmental relations, conducted jointly between the UK and devolved governments, was published in 2022. The agreed structures and ways of working arising from this review have been adopted by all four governments and provide the foundation for effective joint working, including during a crisis.
During the transition from COBR to enduring structures, there should be a discussion between the four nations, following the principles for intergovernmental working as set out in the 2022 Intergovernmental Relations review, to finalise the appropriate structures and ministerial representation, to ensure effective working across all four governments.
Since the Covid-19 pandemic and in preparation for Exercise PEGASUS, the Cabinet Office has collaborated with departments and the devolved governments on the operational planning for the transition of leadership coordination for a pandemic response from COBR (acute crisis) to a taskforce. Where appropriate, ministers and officials from the relevant devolved governments will be invited to attend COBR, and taskforce Cabinet Committee meetings once an enduring response is being coordinated by a taskforce. We will continue to work with the devolved governments to reflect lessons from Exercise PEGASUS in our operational planning.
UK Government · 20 Nov 2025 Written response →
●UK Government — follow-up
The government agrees that a clear four-nations structure is needed during the transition away from COBR (acute crisis response) to an enduring pandemic response to ensure alignment in decision making across the four nations where appropriate.
A review of intergovernmental relations, conducted jointly between the UK and devolved governments, was published in 2022. The agreed structures and ways of working arising from this review have been adopted by all four governments and provide the foundation for effective joint working, including during a crisis.
During the transition from COBR to enduring structures, there should be a discussion between the four nations, following the principles for intergovernmental working as set out in the 2022 Intergovernmental Relations review, to finalise the appropriate structures and ministerial representation, to ensure effective working across all four governments.
Since the Covid-19 pandemic and in preparation for Exercise PEGASUS, the Cabinet Office has collaborated with departments and the devolved governments on the operational planning for the transition of leadership coordination for a pandemic response from COBR (acute crisis) to a taskforce. Where appropriate, ministers and officials from the relevant devolved governments will be invited to attend COBR, and taskforce Cabinet Committee meetings once an enduring response is being coordinated by a taskforce. We will continue to work with the devolved governments to reflect lessons from Exercise PEGASUS in our operational planning.
UK Government · 25 Mar 2026 Written response →
Evidence trail — what's actually happened since
- 20 Nov 2025 Status: Pending. No government response yet received. Module 2 report published 20 November 2025. Source →
Each entry above links to a primary source — gov.uk written statement, consultation response document, or inspection report. The Index does not characterise government intent; it tracks what has been published.
How this page is built
Source and Response are verbatim from primary documents. The Evidence trail records published activity since — written statements, consultation outcomes, inspection findings, parliamentary references. The Index does not paraphrase or characterise intent; it tracks what has been published. Where the evidence is the absence of action (a missed deadline, a slipped timetable), that absence is documented from primary sources rather than inferred.
This recommendation's data is verified periodically against primary sources. The Index is monitored for staleness weekly.