The Anthony Grainger Inquiry

Completed

Anthony Grainger Inquiry

Chair HHJ Thomas Teague QC Judge / Judiciary
Established 18 Jul 2016
Final Report 11 Jul 2019
Commissioned by Home Office

Inquiry into the fatal shooting of Anthony Grainger by a Greater Manchester Police firearms officer during a surveillance operation in 2012. Found GMP failed to plan the operation to minimise recourse to lethal force.

Evidence & Impact
The Anthony Grainger Inquiry examined the fatal shooting of Anthony Grainger by Greater Manchester Police in March 2012 during a planned firearms operation. The inquiry, chaired by HHJ Thomas Teague QC, published its report in July 2019 containing nine recommendations focused on armed policing practices, training, and equipment.

The Government accepted all nine recommendations in its response of May 2020. The response documented several completed actions, including the publication of a revised Code of Practice for Armed Policing and Less Lethal Weapons in January 2020, and the introduction of a structured Organisational Learning Process led by the National Armed Policing Portfolio. Greater Manchester Police confirmed it had ceased using CS dispersal canisters that had not undergone proper approval processes.

Body worn video became a requirement for Armed Response Vehicle officers, with guidance issued for its use in Mobile Armed Support to Surveillance operations at the point of decisive action. The National Mobile Armed Support to Surveillance role profile was updated to require forces to have three covert vehicles equipped with covert blue lights and two-tones.

However, several recommendations showed work in progress as of May 2020 with target completion dates of 31 July 2020. These included developing accurate threat assessment procedures (recommendation 5), reviewing training curricula (recommendation 6), and resolving complexities around body worn video for covert operations (recommendation 7). Recommendation 9, concerning time limits for armed deployments, required independent expert advice before national guidance could be issued.

No published evidence has been identified confirming whether the work described as ongoing in May 2020 was subsequently completed. The absence of formal implementation reviews or progress updates beyond the initial government response leaves the current status of four recommendations unclear in the public record.
Reforms Attributed to This Inquiry
- Publication of revised Code of Practice for Armed Policing and Less Lethal Weapons (January 2020)
- Introduction of structured Organisational Learning Process by National Armed Policing Portfolio Lead
- Requirement for body worn video for all Armed Response Vehicle officers
- National Mobile Armed Support to Surveillance role profile requiring forces to have three covert vehicles equipped with covert blue lights and two-tones
Unfinished Business
- Recommendation 5: Work on building accurate threat assessments had target completion of 31 July 2020 but no public update confirming completion
- Recommendation 6: Review of Mobile Armed Support to Surveillance training had target of 31 July 2020 but no public confirmation of completion
- Recommendation 7: Development of body worn video options for officers in covert roles remained ongoing as of May 2020 with no subsequent public update
- Recommendation 9: National guidance on time limits for armed deployments required independent expert advice with no public update on completion
AI-generated narrative. Generated 26 Mar 2026 using claude-opus-4. Assessment is indicative, not authoritative.
2 years, 11 months Duration
Government Response

Total Recommendations 9
Data last updated: 21 May 2020 · Source
Data verified: 30 Jan 2026 (Claude)
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Government Response tracks what the government said it would do (accepted, rejected, etc.).

Full methodology

4 questions 4 statements since Jul 2019
Written Question Anthony Grainger Inquiry
Mrs Theresa May (Conservative)
19 May 2020
Written Question Police: Firearms
Mrs Theresa May (Conservative)
19 May 2020
Written Question Police: Firearms
Mrs Theresa May (Conservative)
19 May 2020
Written Ministerial Statement Government Response to the Anthony Grainger Inquiry Report
Kit Malthouse (Conservative)
19 May 2020
Written Ministerial Statement Government Response to the Anthony Grainger Inquiry Report
Baroness Williams of Trafford (Conservative)
19 May 2020
View all 8 mentions →
11 Mar 2016
Inquiry Announced
18 Jul 2016
Inquiry Established
11 Jul 2019
Final Report Published

Recommendations (9)

AG-1
Accepted
National Register of Armed Policing Recommendations
Recommendation
A national policing body should manage a national register of recommendations relating to armed policing, and the response to such recommendations, arising from Independent Office for Police Conduct (IOPC) reports, prevention of future death reports made in the course of … Read more
National Police Chiefs Council · 21 May 2020 Accepted
11. Under the leadership of Chief Constable of Civil Nuclear Constabulary, Simon Chesterman, the National Armed Policing Portfolio Lead (NAPP) has introduced a structured Organisational Learning Process. It incorporates lessons identified from IOPC reports, from Inquests' prevention of future death reports statutory inquiries concerning fatal police shootings and, where relevant, operational debriefs, reviews and exercises. The Process links to the Joint Emergency Services Interoperability Principles (JESIP) and Counter Terrorism Organisational Learning Processes. Revised guidance for Armed Policing Strategic Threat and Risk Assessments (APSTRAs) will include the requirement for Chief Officers to be accountable for organisational learning processes. 12. The National …
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National Police Chiefs Council (Primary)
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AG-2
Accepted
HMICFRS Thematic Inspection of Armed Policing
Recommendation
Her Majesty's Inspectorate of Constabulary and Fire & Rescue Services (HMICFRS) should conduct a thematic inspection or inspections concerning: (i) the selection and training of officers authorised to use weapons requiring special authorisation; (ii) the selection and training of officers … Read more
HM Inspectorate of Constabulary and Fire & Rescue Services · 21 May 2020 Accepted
HMICFRS response to the Anthony Grainger Inquiry. 13. HMICFRS have now had the opportunity to consider recommendation 2 of the Anthony Grainger Inquiry. 14. HMICFRS note that the Inquiry Chair, His Honour Judge Teague, was not prescriptive in the recommendation about the precise content for such inspections, or when they should take place. He recognised that these remain matters for HMICFRS. 15. HMICFRS consider that the improved PEEL process arriving in 2020/21 provides the most proportionate, effective and sustainable way both to inspect forces' arrangements for armed policing and the use of less lethal weapons, and to respond to the …
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HM Inspectorate of Constabulary and Fire & Rescue Services (Primary)
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AG-3
Accepted
Code of Practice on New Weapons Approval
Recommendation
The Home Secretary should ensure that the new Code of Practice on Police use of Firearms and Less Lethal Weapons contains an express prohibition on the use of a new weapon system by the police service until the approval process … Read more
Home Office · 21 May 2020 Accepted
16. The Government accepts this recommendation. On 14 January 2020, the Home Secretary approved the revised Code of Practice for Armed Policing and Less Lethal Weapons (LLW). The Code has now been published on The College of Policing website and on GOV.UK at https://www.gov.uk/government/publications/armed-policing-and-police-use-of-less-lethal-weapons-code-of-practice and can be accessed via the official documents page. 17. The revised Code makes clear that all new less lethal weapon systems, certain specialist munitions and significant changes to pre-approved less lethal weapons systems will require approval by the Home Office before they can be used by police forces in England and Wales. All changes to …
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Home Office (Primary)
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AG-4
Accepted
North West Armed Policing SOP Amendment
Recommendation
The North West Armed Policing Standard Operating Procedure on Weapons and Ammunition should be amended so that it only permits the use of new specialist munitions that have been approved in accordance with the Code of Practice for Armed Policing … Read more
Greater Manchester Police · 21 May 2020 Accepted
20. The use of CS dispersal canisters by GMP during Operation Shire was a focus of concern for the Inquiry. The CS dispersal canisters had not been through the approval process that includes the identification of an operational requirement by NPCC, testing by the Defence Science and Technology Laboratory (Dstl) and approval by the Home Secretary for use by police forces in the UK. 21. Greater Manchester Police has informed the Government that in anticipation of a recommendation of this nature, they have revised their Standard Operating Procedure (SOP) to set out that only Less Lethal Weapons and Specialist Munitions …
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Greater Manchester Police (Primary)
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AG-5
Accepted
GMP Intelligence Policy for Armed Deployments
Recommendation
Greater Manchester Police (GMP) should design and promulgate a written policy that specifically relates to the collection, analysis and dissemination of intelligence for the purposes of planned armed deployments within the meaning of the Armed Policing module of Authorised Professional … Read more
Greater Manchester Police · 21 May 2020 Accepted
23. The Inquiry concluded that the missed opportunity to build an accurate picture of the threat presented by Anthony Grainger was a major failing during Operation Shire. This led to an exaggerated assessment of the risk to officers and which led in turn to the events culminating in the tragic death of Anthony Grainger. 24. This is a complex recommendation with national implications and dependencies and as a result NPCC have agreed to lead with input from GMP where required. NPCC leadership is positive in allowing the recommendation to be addressed over several policing disciplines following further assessment, and a …
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Greater Manchester Police (Primary)
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AG-6
Accepted
MASTS Documentation and Training Clarity
Recommendation
All documents and training relating to Mobile Armed Support to Surveillance (MASTS) should: clearly differentiate between MASTS as an operational method of supporting surveillance (and delivering a standard range of tactical options), and the additional tactical options of 'intervention' and … Read more
National Police Chiefs Council · 21 May 2020 Accepted
28. This recommendation is complex and has required a review of Authorised Professional Practice (APP), the National Police Firearms Training Curriculum (NPFTC) and associated policy and doctrine. NPCC have decided to take responsibility, given the important national implications and dependencies. 29. The College of Policing and NPCC's review of the relevant Mobile Armed Support to Surveillance (MASTS) module of the NPFTC and the guidance therein specifically addresses some of the above recommendations, but certain aspects require further work. The NPFTC was amended in 2015 to clarify that MASTS should be understood as an operational platform from which a number of …
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National Police Chiefs Council (Primary)
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AG-7
Accepted
Recording of Firearms Operations
Recommendation
During post incident proceedings following a police shooting, NPCC should consider the advantages of: Recordings of the communications of firearms commanders and authorised firearms officers (AFOs); And video recordings from the body-worn video cameras of AFOs and police vehicles involved … Read more
National Police Chiefs Council · 21 May 2020 Accepted
31. The Government understands that body worn video (BWV) is now a requirement for all Armed Response Vehicle officers. Specialist Firearms Officers use BWV when deployed overtly. NPCC have issued guidance to encourage the use of BWV in MASTS operations at the point of decisive action to all Chief Officers. 32. There is ongoing work to look at BWV options for officers in covert roles which includes consideration of how to resolve some logistical and legal complexities. A project to identify a complementary vehicle-based option is undergoing research and development. The provisional target is to complete work by 31 July …
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National Police Chiefs Council (Primary)
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AG-8
Accepted
MASTS Vehicle Identification Equipment
Recommendation
The National Police Chiefs' Council (NPCC) should consider whether to recommend equipping unmarked vehicles used in Mobile Armed Support to Surveillance (MASTS) interventions with apparatus designed to identify to subjects that those conducting such interventions are police officers - specifically … Read more
National Police Chiefs Council · 21 May 2020 Accepted
33. The NPCC have informed the Government that the National Mobile Armed Support to Surveillance (MASTS) role profile (National Resource Standard) addresses the first part of this recommendation. This requires forces to have three covert vehicles equipped with covert blue lights and two-tones. It is incumbent on all forces conducting MASTS operations to ensure that they meet this requirement. The National Police Firearms Training Curriculum (NPFTC) also provides further guidance on their actual use which all forces are required to understand and apply in the planning and operational phases of all MASTS operations. 34. The NPFTC details the consideration of …
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National Police Chiefs Council (Primary)
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AG-9
Accepted
Maximum Continuous Duty Period for AFOs
Recommendation
The National Police Chiefs' Council (NPCC) and the College of Policing should jointly decide, in the light of independent expert advice, whether there should be a maximum period of time during which authorised firearms officers (AFOs) are permitted to remain … Read more
College of Policing · 21 May 2020 Accepted
37. Following discussions with NPCC and the College of Policing, the Government understands that current guidance does not specify a time limit and that there would be significant operational implications of doing so. There are, however, clearly stated expectations and supporting processes set out below. To meet the requirements of this recommendation, NPCC and the College of Policing intend to seek, and consider, independent expert advice before issuing national guidance. 38. NPCC have informed the Government that in the interim they have recently issued a circular to forces to emphasise that the national position is that at present there is …
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College of Policing (Primary)
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