Pandemic Decision-Making Framework
The UK government and devolved administrations should set out in future pandemic preparedness strategies how decision-making will work in a future pandemic. This should include provision for COBR to be used as the initial response structure and set out how the UK government and devolved administrations will transition from managing a pandemic through COBR to managing it through separate arrangements in each nation when it becomes clear that the emergency will be longer-term.
- DHSC published a Pandemic Preparedness Strategy on 25 March 2026.
- The Amber Book, updated April 2025, provides a default model recommending two Cabinet committees (Strategy and Operations) for pandemic response (Managing Crisis in Central Government, Cabinet Office, April 2025).
- The response states COBR would be used for initial response, with transition to a taskforce model for enduring response.
- Devolved governments would be invited to participate in COBR and taskforce meetings.
- The Minister for Women and Equalities will be engaged in decision-making on vulnerable groups.
How was this evidence gathered?
Response
Accepted
Response
AcceptedThe government's strategic approach to pandemic preparedness is set out in the DHSC-led Pandemic Preparedness Strategy. This reinforces the commitment to working in partnership across government and with the devolved governments to effectively plan for and respond to pandemics. It outlines the principles and high level approach to further strengthen cross government and four nation collaboration, ensuring a whole-system response. It also recognises that devolved governments are responsible for making their own decisions in line with their devolved responsibilities.
In line with this, and in addition to the Amber Book, the Cabinet Office has collaborated with other UK government departments and the devolved governments to develop risk-specific operational plans for whole-system emergencies, such as pandemics, which define roles, structures, and decision-making processes. This includes a Concept of Operations for responding to a pandemic which sets out the practical arrangements to support decision-making in order to deliver the strategic response to a pandemic including considering cascading impacts beyond immediate health outcomes.
For the initial phase of a crisis, the UK government response would be managed through COBR. Consideration would then be given to transitioning to a taskforce model, with associated committee meetings for ministers and officials, for the enduring response.
The specific Cabinet committee structures supporting the response will be established by the Prime Minister of the day, upon the advice of the Cabinet Secretary. The Amber Book provides a default model recommending two Cabinet committees, focusing on Strategy and Operations, to respond to a future pandemic. Arrangements will be made at the time to ensure a seamless transition between COBR and any new Cabinet committee(s), with departments in the UK government and the devolved governments being engaged.
Operational planning includes the expectation that devolved governments would be invited to participate in pandemic COBR and taskforce meetings as appropriate. Devolved government officials will also be invited to serve as liaison officers within the taskforce, facilitating joined-up strategy and implementation at all levels.
The UK government is actively working to enhance its understanding of vulnerabilities during a pandemic, as set out in recommendation 8. This includes considering how equalities concerns and the impacts of response measures on vulnerable groups including children and young people can be most effectively represented at a ministerial level. The UK government will ensure that the Minister for Women and Equalities is engaged in decision-making in this area, alongside any lead Ministers.
No formal response published by this government.
No formal response published by this government.
No formal response published by this government.
The government's strategic approach to pandemic preparedness is set out in the DHSC-led Pandemic Preparedness Strategy. This reinforces the commitment to working in partnership across government and with the devolved governments to effectively plan for and respond to pandemics. It outlines the principles and high level approach to further strengthen cross government and four nation collaboration, ensuring a whole-system response. It also recognises that devolved governments are responsible for making their own decisions in line with their devolved responsibilities.
In line with this, and in addition to the Amber Book, the Cabinet Office has collaborated with other UK government departments and the devolved governments to develop risk-specific operational plans for whole-system emergencies, such as pandemics, which define roles, structures, and decision-making processes. This includes a Concept of Operations for responding to a pandemic which sets out the practical arrangements to support decision-making in order to deliver the strategic response to a pandemic including considering cascading impacts beyond immediate health outcomes.
For the initial phase of a crisis, the UK government response would be managed through COBR. Consideration would then be given to transitioning to a taskforce model, with associated committee meetings for ministers and officials, for the enduring response.
The specific Cabinet committee structures supporting the response will be established by the Prime Minister of the day, upon the advice of the Cabinet Secretary. The Amber Book provides a default model recommending two Cabinet committees, focusing on Strategy and Operations, to respond to a future pandemic. Arrangements will be made at the time to ensure a seamless transition between COBR and any new Cabinet committee(s), with departments in the UK government and the devolved governments being engaged.
Operational planning includes the expectation that devolved governments would be invited to participate in pandemic COBR and taskforce meetings as appropriate. Devolved government officials will also be invited to serve as liaison officers within the taskforce, facilitating joined-up strategy and implementation at all levels.
The UK government is actively working to enhance its understanding of vulnerabilities during a pandemic, as set out in recommendation 8. This includes considering how equalities concerns and the impacts of response measures on vulnerable groups including children and young people can be most effectively represented at a ministerial level. The UK government will ensure that the Minister for Women and Equalities is engaged in decision-making in this area, alongside any lead Ministers.
Progress Timeline
Status: Pending. No government response yet received. Module 2 report published 20 November 2025.