Previous Next
Jump to 5 Recommendations

Manchester Arena Inquiry

Completed
Chair Sir John Saunders Judge / Judiciary
Established 07 Sep 2020
Final Report 02 Mar 2023
Commissioned by Home Office

Public inquiry into the terrorist attack at Manchester Arena on 22 May 2017, which killed 22 people and injured over 1,000 others.

Evidence & Impact
The Manchester Arena Inquiry was established following the terrorist attack at Manchester Arena on 22 May 2017 that killed 22 people. Sir John Saunders published the final report on 2 March 2023, making 169 recommendations across emergency response, security arrangements, and public safety.

The government accepted 164 recommendations (97%) and accepted 5 in principle (3%). Home Secretary Suella Braverman stated in Parliament on 6 March 2023 that the government would 'carefully consider the report's findings and recommendations in full' and committed to ensuring lessons were learned. A recommendations tracking dashboard was subsequently published.

Progress updates from February 2026 indicate that 78 recommendations (46%) are recorded as completed and 91 (54%) remain in progress. Key developments documented include the publication of Joint Operating Principles Version 3 for responding to terrorist attacks, establishment of a new multi-agency radio control system, and introduction of the Ten Second Triage system for major incidents.

Several working groups and programmes have been established, including the Clinical Response to Major Incidents group and the Stronger Local Resilience Forum trailblazer programme. The Security Industry Authority has worked with the Health and Safety Executive to develop enhanced first aid training incorporating the inquiry's recommendations.

However, multiple recommendations show limited documented progress nearly three years after publication. Several relating to legislative changes, including extending Security Industry Authority licensing and reforms to the Inquiries Act 2005, remain under consideration. The development of a healthcare standard for events, while noted as progressing with research projects complete, is not due for publication until 2026. The Clinical Response to Major Incidents group has revised its timeline to 2027 due to resource constraints.

The Ministry of Justice has stated there are no current plans to increase maximum sentences under the Inquiries Act, despite this being recommended. Various guidance documents and approved professional practices are noted as being developed but have not yet been published according to the available evidence.
Reforms Attributed to This Inquiry
- Joint Operating Principles (JOPs) Version 3 published and signed off by tri-services following the inquiry, containing additional principles for responding to Marauding Terrorist Attacks
- New multi-agency radio control talk group established, shared between police, fire and ambulance services and monitored 24/7 in control rooms
- Ten Second Triage system introduced for first responders at major incidents, including appropriate visible identifiers and triage labels
- Sector-specific Emergency First Aid at Work certificate developed by Security Industry Authority with Health and Safety Executive, incorporating inquiry-recommended training areas
- Clinical Response to Major Incidents (CRMI) working group established to implement healthcare-related recommendations
- Public Access Trauma Kit contents clinically reviewed and finalised, with specifications published on PROTECT UK website
- New operational and tactical commanders training devised and launched to police forces
- Stronger Local Resilience Forum trailblazer programme launched in spring 2025 with five participating LRFs: Cumbria, Greater Manchester, London, Northumbria and Suffolk
Unfinished Business
- Recommendation on extending Security Industry Authority licensing requirements for CCTV monitoring and security contractors - noted as requiring legislative change but no evidence of progress
- Recommendations relating to reforms of the Inquiries Act 2005 - Cabinet Office noted as considering wider reforms but no specific action documented
- Recommendation to increase maximum sentence for Inquiries Act offences - Ministry of Justice stated there are no current plans to increase the maximum sentence
- Multiple recommendations relating to the development of a healthcare standard for events - research projects noted as complete but standard not yet published (due 2026)
- Legislative changes on analgesia - consultation document being drafted by Department of Health and Social Care but not yet published
- National Events guidance - noted as currently being developed but not yet published
- Command and control approved professional practice (APP) - due for launch in 2025 but not yet published
AI-generated narrative. Generated 26 Mar 2026 using claude-opus-4. Assessment is indicative, not authoritative.
2 years, 5 months Duration
£36.3m Total Cost
291 Witnesses
196 Hearing Days
1,346 Report Pages
Inquiry Website Official Statement Terms of Reference
Government Response
Accepted 164
Accepted in Part 5
Total Recommendations 169
Data last updated: 27 Feb 2026 · Source
Data verified: 26 May 2026 (import)
How to read this

Government Response tracks what the government said it would do (accepted, rejected, etc.).

Full methodology

2 debates 27 questions 16 statements since Sep 2020
Early Day Motion Mountain rescue in Cumbria
Tim Farron (Liberal Democrat)
16 Apr 2026
Written Question Athletes: Health Services
Dame Caroline Dinenage (Conservative)
10 Apr 2026
Written Question Health Professions: Culture and Sports
Dame Caroline Dinenage (Conservative)
13 Mar 2026
Written Question Sports: Care Quality Commission
Dame Caroline Dinenage (Conservative)
13 Mar 2026
Written Question Security Guards: Licensing
Melanie Onn (Labour)
11 Feb 2026
View all 49 mentions →
All Activity (49)
22 May 2017
Manchester Arena Attack

Terrorist attack at Manchester Arena killed 22 people.

22 Oct 2019
Inquiry Announced

Home Secretary announced a public inquiry.

Source
22 Oct 2019
Chair Appointed

Sir John Saunders appointed as Chair.

07 Sep 2020
Hearings Begin

Public hearings commenced.

17 Jun 2021
Volume 1 Published

Volume 1 report on security published.

Source
03 Nov 2022
Volume 2 Published

Volume 2 report on emergency response published.

Source
02 Mar 2023
Volume 3 Published

Final volume on radicalisation of the attacker published.

Source
08 Jun 2023
Government Response

Government published response accepting recommendations.

Source
Total Inquiry Cost (Cumulative) £36,323,455
to Aug 2023 Cumulative Total Oct 2019 - Aug 2023
Cost Breakdown (to Aug 2023)
Inquiry Legal Costs £12,933,544 Panel remuneration & Counsel to the Inquiry
Core Participant Legal Costs £12,025,040 Legal funding for core participants
Staff £2,253,186
Accommodation £2,319,627
Technology £5,344,006
Other £1,448,052
Total inquiry cost £36.32 million. Inquiry ran from Oct 2019 to June 2023. Chair: Sir John Saunders. Three volumes of reports published 2022-2023. S40 payments (Core Participant legal costs) totalled £12.03 million.
Cost History
Period Total Inquiry Legal CP Legal Source
Aug 2023 £433,226 £161,032 £50,193
Aug 2023 (cum.) £36,323,455 £12,933,544 £12,025,040
Mar 2023 £2,900,968 £1,518,494 £169,977
Mar 2022 £13,359,502 £4,525,677 £4,421,346
Mar 2021 £15,871,460 £4,700,572 £6,326,137
Mar 2020 £3,758,299 £2,027,769 £1,057,387
Clear

Recommendations (5)

MAI-48
Accepted in Part
Statutory powers for witness attendance at inquiries
Recommendation
It is recommended that consideration be given to the creation of statutory powers under section 36 that can be used to prevent a material witness to an inquiry putting themselves beyond the reach of the existing powers to compel a … Read more
Published evidence summary
- The Government's implementation dashboard records this recommendation as partially accepted with delivery status "In progress" (Manchester Arena Inquiry Recommendations Dashboard, Cabinet Office, February 2026).
- The Cabinet Office is considering wider reforms of the Inquiries Act 2005 following the Statutory Inquiries Committee recommendations (Manchester Arena Inquiry Recommendations Dashboard, Cabinet Office, February 2026).
- The Ministry of Justice stated these recommendations will be considered in light of the wider reforms and changes needed in legislation will be taken forward as part of a broader package (Manchester Arena Inquiry Recommendations Dashboard, Cabinet Office, February 2026).
View Details
MAI-56
Accepted in Part
Address extradition difficulties for section 35 offences
Recommendation
It is recommended that the Home Office give consideration to addressing the difficulties in extradition in relation to an offence under section 35, given that the maximum sentence for such an offence is below the minimum qualifying threshold for extradition. Read more
Published evidence summary
- The Government's implementation dashboard records this recommendation as partially accepted with delivery status "In progress" (Manchester Arena Inquiry Recommendations Dashboard, Cabinet Office, February 2026).
- The Ministry of Justice stated there are no current plans to increase the maximum sentence for committing an offence under the Inquiries Act, as current and proposed sentence lengths are considered proportionate (Manchester Arena Inquiry Recommendations Dashboard, Cabinet Office, February 2026).
- The Cabinet Office is considering wider reforms of the Inquiries Act 2005, with these recommendations to be considered by MoJ in light of broader reforms (Manchester Arena Inquiry Recommendations Dashboard, Cabinet Office, February 2026).
Home Office (Primary)
View Details
MAI-57
Accepted in Part
Amend section 21 for witness interview requirements
Recommendation

It is recommended that the Ministry of Justice give consideration to amending section 21 of the 2005 Act to include the express provision for requiring a potential witness to participate in an interview.

Published evidence summary
- The Government's implementation dashboard records this recommendation as partially accepted with delivery status "In progress" (Manchester Arena Inquiry Recommendations Dashboard, Cabinet Office, February 2026).
- The Cabinet Office is considering wider reforms of the Inquiries Act 2005, with these recommendations to be taken forward as part of a broader legislative package (Manchester Arena Inquiry Recommendations Dashboard, Cabinet Office, February 2026).
View Details
MAI-58
Accepted in Part
Amend section 36 for pre-emptive witness enforcement
Recommendation
It is recommended that the Ministry of Justice, possibly in conjunction with the Law Commission, give consideration to amending section 36 of the 2005 Act to make provision for issuing pre-emptive enforcement proceedings for witnesses in relation to whom there … Read more
Published evidence summary
- The Government's implementation dashboard records this recommendation as partially accepted with delivery status "In progress" (Manchester Arena Inquiry Recommendations Dashboard, Cabinet Office, February 2026).
- The Cabinet Office is considering wider reforms of the Inquiries Act 2005 following the Statutory Inquiries Committee recommendations, with changes needed in legislation to be taken forward as part of a broader package (Manchester Arena Inquiry Recommendations Dashboard, Cabinet Office, February 2026).
View Details
MAI-121
Accepted in Part
Consequences for breaching event healthcare standards
Recommendation
The Department of Health and Social Care together with the Care Quality Commission should consider what the consequences of breaching the appropriate standard should be. That should include consideration of whether the sanction should be criminal in nature. Read more
Published evidence summary
- The Government's implementation dashboard records this recommendation as partially accepted with delivery status "In progress" (Manchester Arena Inquiry Recommendations Dashboard, Cabinet Office, February 2026).
- DHSC stated this will be considered as part of the implementation and evaluation stage of the Event Healthcare Standard, including the need for a regulatory footing and possible sanctions (Manchester Arena Inquiry Recommendations Dashboard, Cabinet Office, February 2026).
Department of Health and Social Care (Primary)
View Details