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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 chaired the inquiry, which published its final report on 2 March 2023 containing 169 recommendations across emergency response, security arrangements, and preventability.

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 78 recommendations (46%) are recorded as completed and 91 (54%) remain in progress. Key developments include the publication of Joint Operating Principles Version 3 for responding to marauding terrorist attacks, establishment of a multi-agency radio control system monitored 24/7 across emergency services, and introduction of the Ten Second Triage system for major incidents.

The Security Industry Authority has worked with the Health and Safety Executive to implement sector-specific first aid training incorporating the inquiry's recommendations. NHS England has updated Core Standards for emergency preparedness to include specific requirements for Hazardous Area Response Teams deployment within 15 minutes.

Several significant workstreams remain in development. The Clinical Response to Major Incidents programme has revised its timeline to 2027 due to resource constraints. Legislative changes regarding analgesia administration are at consultation stage. A healthcare standard for events is being drafted following completed research. The Cabinet Office is considering wider reforms to the Inquiries Act 2005.

Five local resilience forums have been selected for a Stronger LRF trailblazer programme launching in spring 2025 to test different models of strengthening accountability, leadership and assurance. Work continues on developing national events guidance, command and control approved professional practice, and a peer review protocol for local resilience forums.
Reforms Attributed to This Inquiry
- Joint Operating Principles (JOPs) Version 3 published and signed off by tri-services for Marauding Terrorist Attack response
- New multi-agency radio control talk group established, shared between police, fire and ambulance services and monitored 24/7
- Ten Second Triage system introduced for first responders at major incidents
- Security Industry Authority requirement for sector-specific Emergency First Aid at Work certificate including additional training areas
- NHS Core Standards for Emergency Preparedness, Resilience and Response (EPRR) updated to include Hazardous Area Response Teams (HART) deployment requirements
- Stronger Local Resilience Forum trailblazer programme launched in spring 2025 with five participating LRFs
- Public Access Trauma Kit contents clinically reviewed and published on PROTECT UK website
- New operational and tactical commanders training devised and launched to police forces
Unfinished Business
- Legislative changes on analgesia administration (consultation document being drafted)
- Review of Inquiries Act 2005 reforms (under consideration by Cabinet Office)
- National Events guidance (currently being developed)
- Healthcare standard for events (research complete, drafting begun)
- Command and control approved professional practice (APP) due for launch in 2025
- Clinical Response to Major Incidents (CRMI) programme timelines revised to 2027
- Operational discretion guidance (under national review)
- Peer review protocol for local resilience forums (proposals being developed)
Generated 18 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: 24 Mar 2026 (import)
How to read this

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

Full methodology

2 debates 25 questions 16 statements since Sep 2020
Written Question Sports: Care Quality Commission
Dame Caroline Dinenage (Conservative)
13 Mar 2026
Written Question Security Guards: Licensing
Melanie Onn (Labour)
11 Feb 2026
Written Ministerial Statement Consultation on Manchester Arena Inquiry recommendations 7 and 8
Dan Jarvis (Labour)
18 Dec 2025
Written Ministerial Statement Consultation on Manchester Arena Inquiry recommendations 7 and 8
Lord Hanson of Flint (Labour)
18 Dec 2025
Written Ministerial Statement Consultation on Manchester Arena Inquiry recommendations 7 and 8
Lord Hanson of Flint (Labour)
15 Dec 2025
View all 46 mentions →
All Activity (46)
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
A gov.uk progress update (February 2026) reports that the Cabinet Office is considering wider reforms of the Inquiries Act 2005 and measures to strengthen public inquiries, following recommendations from the Statutory Inquiries Committee on the efficacy of the law and practice relating to statutory inquiries. This consideration aims to address the creation of statutory powers to prevent material witnesses from avoiding attendance.
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 Ministry of Justice has noted the recommendation but has no current plans to increase the maximum sentence for an offence under the Inquiries Act to meet the minimum qualifying threshold for extradition (gov.uk progress update, 27 Feb 2026). The maximum sentence for such an offence is currently 6 months, with a planned increase to 51 weeks upon commencement of section 281(5) of the Criminal Justice Act 2003 (gov.uk progress update, 14 Nov 2025).
Home Office (Primary)
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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 Cabinet Office is currently considering wider reforms of the Inquiries Act 2005, as well as measures to strengthen public inquiries, following recommendations from the Statutory Inquiries Committee on the efficacy of the law and practice relating to statutory inquiries (gov.uk progress update, 27 Feb 2026). No specific amendment to section 21 to include express provision for requiring a potential witness to participate in an interview has been made or announced (gov.uk progress update, 14 Nov 2025).
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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 Cabinet Office is currently considering wider reforms of the Inquiries Act 2005, as well as measures to strengthen public inquiries, following recommendations from the Statutory Inquiries Committee on the efficacy of the law and practice relating to statutory inquiries (gov.uk progress update, 27 Feb 2026). No specific amendment to section 36 to make provision for issuing pre-emptive enforcement proceedings for uncooperative witnesses has been made or announced (gov.uk progress update, 14 Nov 2025).
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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 Department of Health and Social Care, in conjunction with the Care Quality Commission, is considering the consequences of breaching appropriate event healthcare standards as part of the implementation and evaluation stage of a new standard. A gov.uk progress update (February 2026) states that the standard is being developed to incorporate best practices, and the recommendation, including the need for criminal sanctions, remains under consideration.
Department of Health and Social Care (Primary)
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