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The ICL Inquiry

Completed

ICL Inquiry

Chair Lord Gill Judge / Judiciary
Established 27 Apr 2009
Final Report 16 Jul 2009
Commissioned by Scottish Government

Inquiry into the Stockline Plastics factory explosion in Glasgow on 11 May 2004 which killed 9 workers. Found that corroded LPG pipework caused the explosion. Described as "short, sharp and hard-hitting" - completed in 13 months at £1.9m cost.

Evidence & Impact
The ICL Inquiry was established following the explosion at ICL Plastics Ltd in Glasgow on 11 May 2004, which killed nine people and injured 33. Lord Gill's inquiry identified that corrosion of underground metallic service pipes was the key factor in the explosion and made seven recommendations to improve LPG safety across the UK.

The government's response in March 2010 (Cm. 7849) accepted five recommendations fully, one in principle, and rejected one. The rejection concerned mandatory independent audits of workplace risk assessments, which the government concluded was unnecessary given 78% stakeholder opposition and the view that other proposed measures would achieve the safety objectives.

Implementation has been largely successful. The centrepiece reform - a nationwide programme to replace buried metallic LPG service pipework - was completed by the 2015 deadline, covering up to 40,000 premises. HSE worked closely with UKLPG (UK LPG Association) to prioritise higher-risk premises by 2013. Supporting reforms included enhanced installation records, supplier registers, web-based guidance for LPG users, and regular communication channels between HSE and industry bodies.

The one area of incomplete implementation concerns recommendation ICL-3 on establishing an accredited registration scheme for LPG suppliers. While the government accepted this in principle, noting 70% stakeholder support, and asked HSE to consult on options ranging from formal third-party accreditation to a charter of standards, no evidence has been identified of such a scheme being established. The HSE website references work on a supplier register, but this falls short of the formal accreditation scheme Lord Gill envisaged.

The inquiry's impact on LPG safety has been substantial, with the pipework replacement programme representing a significant infrastructure upgrade. The strengthened regulatory framework, improved guidance, and enhanced communication between regulators and industry have created lasting improvements to LPG safety management across industrial and commercial premises.
Reforms Attributed to This Inquiry
- Nationwide programme to replace buried metallic LPG service pipework at industrial and commercial premises, with higher-risk premises prioritised by 2013 and all replacements completed by 2015
- Enhanced installation records and supplier asset registers for LPG installations to improve safety oversight
- Establishment of regular meetings between senior representatives of HSE and UKLPG to strengthen communication channels
- Development of web-based guidance for LPG users on meeting their statutory safety obligations
- HSE-funded research into polyethylene piping safety with published guidance for domestic LPG customers
- Nationwide inspection initiative to verify compliance with LPG safety standards
Unfinished Business
- Formal accredited registration scheme for LPG suppliers as envisaged by Lord Gill - whilst accepted in principle with 70% stakeholder support, no evidence of implementation beyond references to work on a supplier register
Generated 10 Mar 2026 using AI. Assessment is indicative, not authoritative.
2 months Duration
£1.9m Total Cost
Government Response
Accepted 5
Accepted in Part 1
Not Accepted 1
Total Recommendations 7
Data last updated: 31 Dec 2015 · Source
Data verified: 25 Mar 2026 (import)
How to read this

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

Full methodology

1 question since Dec 2025
Written Question ICL Inquiry
Simon Hoare (Conservative)
02 Dec 2025
All Activity (1)
Title Volume Publication Date Recs Links
The ICL Inquiry Report: Explosion at Grovepark Mills, Maryhill, Glasgow, 11 May 2004 Final 16 Jul 2009 7
18 Dec 2008
Inquiry Announced
27 Apr 2009
Inquiry Established
17 Dec 2016
Final Report Published
Clear

Recommendations (5)

ICL-1
Accepted
Replace Buried Metallic LPG Pipes
Recommendation

An urgent programme of replacement of buried metallic LPG pipework with polyethylene piping should be implemented.

Published evidence summary
The government accepted this recommendation, and the Health and Safety Executive (HSE) implemented a nationwide programme to replace buried metallic LPG service pipework with polyethylene piping. This programme began in October 2009, with an Expert Panel revising priorities in 2010, and included an inspection campaign with local authorities (Health and Safety Executive, 2015-12-31). The government's response in 2010 aimed for higher-risk premises to be completed by the end of 2013 and all industrial and commercial premises by 2015 (Cm. 7849, 2010-03-18). HSE confirmed that all buried metallic LPG service pipe replacements were completed by the 2015 deadline, with Priority 1 premises targeted by end 2015 and Priority 2 by end 2020 (Health and Safety Executive, 2015-12-31). No further published evidence has been identified since 2015.
Health and Safety Executive (Primary)
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ICL-2
Accepted
New LPG Safety Regime
Recommendation

A new safety regime should be put in place governing the installation, maintenance, monitoring and replacement of all LPG systems.

Published evidence summary
The government accepted this recommendation, determining that the existing legislative framework was sufficient when supported by improved guidance, compliance, and enforcement (Cm. 7849, 2010-03-18). The Health and Safety Executive (HSE) strengthened the LPG safety regime by publishing new guidance, including INDG428 on inspecting and maintaining or replacing buried metallic pipework, and work instructions for LPG pipework replacement inspection campaigns (OM 2011/08) (Health and Safety Executive, 2015-12-31). HSE also published web-based guidance for LPG users and funded research to provide advice for domestic premises (Govt response, 2010-03-18; Health and Safety Executive, 2015-12-31). No further published evidence has been identified since 2015.
Health and Safety Executive (Primary)
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ICL-5
Accepted
Polyethylene Piping Research
Recommendation

Research into the safety of polyethylene piping should be conducted to ensure long-term reliability.

Published evidence summary
The government accepted this recommendation, and the Health and Safety Executive (HSE) reviewed natural gas pipeline replacement research on polyethylene pipe long-term stability, which indicated a 50-year design life (Cm. 7849, 2010-03-18). HSE consulted with IGEM, UKLPG, and polyethylene pipe manufacturers on appropriate integrity tests (Cm. 7849, 2010-03-18). Furthermore, HSE funded research into polyethylene piping safety, with findings informing the development of safety guidance for both commercial and domestic LPG installations, published as INDG428 and supporting online guidance (Health and Safety Executive, 2015-12-31). No further published evidence has been identified since 2015.
Health and Safety Executive (Primary)
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ICL-6
Accepted
LPG Safety Communications
Recommendation

There should be prompt and effective communication between all interested parties of all technical developments in matters of LPG safety.

Published evidence summary
The government accepted this recommendation, noting significant efforts between the Health and Safety Executive (HSE) and UKLPG to establish strong communication channels, including regular meetings between senior representatives and working groups to address specific issues (Cm. 7849, 2010-03-18). HSE established communication channels between itself, industry bodies, LPG suppliers, and consumers, publishing dedicated web pages and coordinating with the LPG industry on safety improvements (Health and Safety Executive, 2015-12-31). HSE maintains a comprehensive online resource for LPG safety, which includes survey information, inspection campaign details, pipework replacement programme updates, and guidance documents (Health and Safety Executive, 2015-12-31). No further published evidence has been identified since 2015.
Health and Safety Executive (Primary)
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ICL-7
Accepted
Legal Responsibility Awareness
Recommendation

Awareness of legal responsibilities should be raised among LPG suppliers and consumers.

Published evidence summary
The government accepted this recommendation, and the Health and Safety Executive (HSE), in consultation with UKLPG, developed and published web-based guidance for LPG users on meeting their legal obligations by the end of Q1 2010 (Cm. 7849, 2010-03-18). HSE conducted awareness campaigns for LPG suppliers and consumers, publishing guidance documents such as INDG428 and online resources targeting both commercial operators and domestic users (Health and Safety Executive, 2015-12-31). Awareness activities also included the distribution of survey questionnaires to all known LPG installations and coordination with local authority enforcement teams (Health and Safety Executive, 2015-12-31). No further published evidence has been identified since 2015.
Health and Safety Executive (Primary)
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