What will the Covid inquiry look at – and when will we get answers?

The official public inquiry into the government’s handling of Covid is due to begin in earnest this week. But what will it focus on, who will give evidence and how much will it cost? Here is a guide to where we stand at the beginning of what is likely to be years of forensic examination.

Who is in charge?

The inquiry chair is Lady Heather Hallett, a former appeal court judge who acted as coroner at the inquest into the London bombings of 7 July 2005.

She is running an independent inquiry established by Boris Johnson, then prime minister, under the Inquiries Act. That means she can compel the production of documents and call witnesses to give evidence under oath. She will preside alone, rather than with fellow panellists, after a decision by Johnson to avoid delay.

Hugo Keith KC, the counsel to the inquiry, is chief inquisitor. The Oxford-educated barrister, described in the Chambers legal guide as “one of the best inquest silks on the market”, previously represented the late Queen at the inquest into the death of Princess Diana, Rebekah Brooks at the Leveson Inquiry and Boris Berezovsky at the inquest into the death of Alexander Litvinenko.

What will the inquiry examine?

The overarching themes are “the UK’s response to and impact of” the pandemic and “what lessons can be learned”. But Hallett will break these into modules.

Four have been formally opened: resilience and preparedness, core UK decision-making and political governance, impact of the pandemic on healthcare and vaccines and therapeutics. These hearings will probably run until the end of 2024, at which point a general election is expected. Further modules on procurement, including PPE, and social care will run in the first half of 2025, leaving another year to cover test and trace, education, children and young people, financial support for business, jobs and the self employed, funding of public services and the voluntary sector, and benefits and support for vulnerable people.

The inquiry’s final modules will investigate the pandemic’s impact and inequalities in the context of public services – including key workers – and in the context of businesses.

What about the devolved nations?

A separate inquiry is under way in Scotland and the two chairs have agreed to regular coordination to limit duplication. Hallett’s UK-wide inquiry will conduct its own hearings on government decision-making in Wales, Scotland and Northern Ireland on road trips next year.

Who will the inquiry hear from?

As many as 70 witnesses will contribute to the first module on pandemic preparedness, starting on Thursday with Prof Jimmy Whitworth and Dr Charlotte Hammer, experts in infectious diseases, epidemiology and public health. If the inquiry continues at that rate, Hallett may have called 1,000 people before she is finished.

At least three prime ministers (David Cameron, Johnson and Rishi Sunak), numerous cabinet ministers, senior civil servants and Chris Whitty and Patrick Vallance, the chief medical and scientific officers during the pandemic, are among likely witnesses.

Each module has different “core participants”, legally represented at the inquiry. There are 27 such organisations or individuals in the first section, 39 in the second and so on. They range from government departments to universities, trade unions and campaign groups. Covid bereaved groups are represented but are not being asked to give evidence as much as they would like.

How will bereaved people and the public have a say?

The inquiry has set up a listening exercise called “Every Story Matters”. A total of 6,000 people have so far completed an online form telling their stories, but Hallett wants more and is drumming up interest with TV, print and social media advertising. Responses will be analysed by “specialist researchers” who will also apply computerised artificial intelligence “to make sure we are not missing trends or key insights” and “help reduce human bias”. Summarised and anonymised responses will be turned into themed reports, submitted into each relevant investigation as evidence. The inquiry is also planning “community listening events” across the UK, so people can share their story in person with members of the inquiry team.

Where will it happen?

Mostly in London at hearing rooms in Paddington previously used for the Grenfell Tower public inquiry. With so many witnesses and core participants space will be tight and the bereaved are frustrated at the lack of room for more than a few people in the main hearing room. Hallett said “we couldn’t find a venue that was perfect, available for the time that we shall need it, and that would not cost the taxpayer an exorbitant sum of money”. Every minute will be streamed on YouTube.

When do we get answers?

Hearings are due to conclude in summer 2026, although public inquiry timetables are prone to slippage. So final analysis may not come until later that year or even 2027. However, Hallett wants to issue reports on each module as she goes. She hopes to publish reports on preparedness and resilience and core decision making during 2024.

Who is paying?

Even before the first witness is sworn in, the inquiry has spent £23m, while it and several government departments have issued long-term contracts for around £126m, according to Tussell, a company that monitors government contracts. Large sums are being spent to digitally manage the avalanche of written evidence. Core participants can apply for state funding for legal representation. The Covid-19 Bereaved Families for Justice group is understood to be funded, whereas the Trades Union Congress is not. The cost to the taxpayer will probably reach into hundreds of millions of pounds.