The NAO found that, before the pandemic, departments lacked an agreed understanding of risk tolerance, such as which consequences of a pandemic they deemed acceptable and which consequences they needed to mitigate. The Cabinet Office agreed that government reached a shared understanding of the objectives and priorities they 3 Qq 28, 55–60, 74, 80–83 4 C&AG’s Report, para. 3.14; Q 70. 5 C&AG’s Report, para. 4.2; HM Government, The Orange Book: Management of Risk – Principles and Concepts, February 2020 6 Qq 86–95 7 Government Finance Function, Good Practice Guide: Risk Reporting, August 2021; Risk Appetite Guidance Note, October 2020, revised August 2021; Risk Management Skills and Capabilities Framework, August 2021 8 HM Government, The Orange Book: Management of Risk – Principles and Concepts, February 2020 9 Qq 49, 84–85 Government preparedness for the COVID-19 pandemic: lessons for government on risk 11 should focus on only at the start of a pandemic, following the establishment of its crisis response structures. Government officials told the NAO that a shared understanding of risk tolerance for many cross-government issues is still being developed.10 Communication of the main risks facing the UK