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Renewable Heat Incentive Inquiry

Completed

RHI Inquiry

Chair Sir Patrick Coghlin Judge / Judiciary
Established 01 Jun 2017
Final Report 13 Mar 2020
Commissioned by Northern Ireland Executive

Northern Ireland inquiry into the Renewable Heat Incentive scandal which led to collapse of power-sharing. The flawed scheme cost the public purse nearly £500 million.

Evidence & Impact
The Renewable Heat Incentive Inquiry examined the design and operation of a flawed energy subsidy scheme in Northern Ireland that led to significant overspending of public funds. Sir Patrick Coghlin's report made 45 recommendations addressing policy development, governance, financial controls, professional skills, and the conduct of ministers and special advisers.

The Northern Ireland Executive accepted 43 of 45 recommendations in October 2021, accepting one in principle and rejecting one concerning an independent mechanism for assessing special adviser compliance. The Northern Ireland Audit Office has published two progress reports (June 2022 and October 2024) assessing implementation.

Substantial structural changes are documented in the public record. The Functioning of Government Act 2021 created a statutory framework for ministerial standards, while revised codes of conduct for ministers and special advisers were published in 2020-21. New policy guidance including 'Making a Difference' (2023) and Better Business Cases NI (2020) addressed policy development and business case processes. Financial controls were strengthened through updated Managing Public Money NI guidance (2023).

The NIAO's October 2024 assessment found 29 recommendations (64%) showing evidence of completion through specific actions, while 15 recommendations (33%) had no recent updates on progress. Six recommendations were assessed as unlikely to be fully addressed, with the Department of Finance maintaining that existing arrangements are sufficient or that monitoring would be disproportionate.

Key gaps identified by NIAO include the absence of regular record-keeping audits, no specific action to ensure ministers familiarise themselves with legislation they present, and no requirement in the Ministerial Code for ministers to actively question official advice. While training programmes and guidance have been developed across multiple areas, NIAO notes the need for evidence that new frameworks are being rigorously applied in practice.
Reforms Attributed to This Inquiry
- Functioning of Government (Miscellaneous Provisions) Act (Northern Ireland) 2021 established statutory framework for ministerial declarations of interest and empowered NI Assembly Commissioner for Standards to investigate ministerial code breaches
- Better Business Cases NI framework (November 2020) redesigned business case approval processes with strengthened value for money requirements
- Making a Difference policy guide (February 2023) launched to 900+ officials addressing policy development skills and resource assessment
- Revised Ministerial Code of Conduct and Code of Conduct for Special Advisers (January 2020, updated August 2021) with comprehensive provisions on conduct, conflicts of interest and record-keeping
- Raising a Concern Policy Framework established with 17 trained investigators through Government Internal Audit and Fraud Investigation Service (GIAFIS)
- Managing Public Money NI updated (November 2023) with strengthened financial controls and monitoring provisions
- Project Delivery Profession established within Northern Ireland Civil Service with accredited practitioner-level training
- Shared Leadership Board created between departments and arm's length bodies to improve cross-departmental collaboration
Unfinished Business
- Recommendation 28(2): No firm commitment to implement regular record-keeping audits - Department of Finance maintains existing arrangements are sufficient
- Recommendation 32a: No evidence departments have reviewed how governance systems work in practice or that staff actively understand and use them
- Recommendation 39: No specific action taken to ensure Ministers sufficiently read and familiarise themselves with legislation they present to Assembly
- Recommendation 9(2): No specific guidance or training developed on handling commercially sensitive information beyond relying on individual judgement
- Recommendation 13: Department of Finance maintains it would be 'disproportionate' to monitor whether departments engage external board members as recommended
- Recommendation 42(1-2): Ministerial Code does not include requirement for Ministers to take active role in questioning official advice
AI-generated narrative. Generated 26 Mar 2026 using claude-opus-4. Assessment is indicative, not authoritative.
2 years, 9 months Duration
£12m Total Cost
63 Witnesses
114 Hearing Days
1,200,000 Documents
656 Report Pages
Inquiry Website
Government Response
Accepted 43
Accepted in Part 1
Not Accepted 1
Total Recommendations 45
Data last updated: 15 Oct 2024 · 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

1 question since Jun 2020
Written Question Renewable Heat Incentive Inquiry: Northern Ireland
Ian Paisley (Democratic Unionist Party)
08 Jun 2020
All Activity (1)
24 Jan 2017
Inquiry Announced
01 Jun 2017
Inquiry Established
13 Mar 2020
Final Report Published
Clear

Recommendations (1)

RHI-43
Not Accepted
Independent Compliance Assessment
Recommendation
In addition, the Northern Ireland Executive and Assembly ought, in the Inquiry's view, to give due consideration to an independent mechanism to assess compliance with codes of conduct in public life as they apply to Ministers and Special Advisers. Whatever … Read more
Published evidence summary
- In October 2021, the NI Executive accepted this recommendation in full (NI Executive Response to RHI Inquiry, Department of Finance, October 2021).
- The NIAO Second Progress Report (October 2024) assessed this recommendation as Implemented, stating that the NI Assembly Commissioner for Standards now has a statutory remit to investigate ministerial code breaches under the Functioning of Government (Miscellaneous Provisions) Act (Northern Ireland) 2024 (NIAO Second Progress Report, October 2024).
Northern Ireland Executive (Primary)
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