UK Covid-19 Inquiry - Module 2 report: Scottish Government response

Theme 2: Communications and digital access

The Scottish Government recognises the critical importance of clear, timely and accessible communications in any future pandemic and notes CIREG’s feedback that transparency is a core requirement for public trust. Across the recommendations in Theme 2, the Scottish Government is committed to improving openness in the publication of technical advice, strengthening the accessibility of public information, and working collaboratively with UK Government and devolved governments to support the public in finding accurate and relevant guidance.

While some recommendations are accepted in full and others in principle due to cross‑government constraints, work is already underway to develop the necessary guidance, action plans and four‑nations coordination needed to ensure people in Scotland can understand and act on the information provided during a crisis.

Recommendation 4 – Publication of technical advice

Chair’s recommendation:

During a whole-system civil emergency, the UK Government and devolved governments should each routinely publish technical advice on scientific, economic and social matters at the earliest opportunity, as well as the minutes of expert advisory groups – except where there are good reasons that prevent publication, such as commercial confidentiality, personal safety or national security, or because legal advice privilege applies.

Scottish Government response:

The Scottish Government accepts this recommendation which is in line with current practice and will be delivered following the principles of open government of transparency, participation, and accountability.

Scottish Government analysts proactively publish data and evidence to enhance transparency, accountability, and public trust. The Scottish Government has developed an analytical framework for future pandemics setting out principles, structures and arrangements that should underpin our analytical response to a future pandemic.

The framework highlights the critical need for transparency and clear communication of evidence and reasoning behind decisions to reduce the spread of mis- and disinformation, and emphasises the policy of Scottish Government analytical professions to proactively publish data and evidence in a timely way.

The framework also sets out how to work effectively with the UK Government and the other four nations; while ensuring practice takes account of Scottish and local circumstances, outlining the value of strong communications and the need to work with trusted community messengers.

Further information regarding the analytical framework is covered in our response to recommendation 12.

Actions and Implementation timescales:

During autumn 2025, the Scottish Government participated in the pandemic exercise, known as Exercise Pegasus. It was the largest ever UK-wide pandemic exercise to test our national and local preparedness for future pandemics. The analytical framework for future pandemics will be published later in 2026 following a review of, and any updates required in response to, the Exercise Pegasus evaluation reports.

Work to consider our analytical response to civil contingency emergencies beyond pandemics is in development.

Accountable Officer:

The Director General Corporate, working with the Improving Public Engagement Team within the Scottish Government, will be accountable for the implementation of the Scottish elements of this recommendation.

Recommendation 14 – Plans for accessible communications

Chair’s recommendation:

The UK Government and devolved governments should each develop action plans for how government communications will be made more accessible during a pandemic. As a minimum, these should include making provision for the translation of government press conferences into British Sign Language (and Irish Sign Language in Northern Ireland) and the translation of key announcements into the most frequently spoken languages in the UK.

Scottish Government response:

The Scottish Government accepts this recommendation. Its communications team will work with policy colleagues to take forward the recommendations on public health communications accessibility. We will develop an action plan covering accessible communications in general, not only in relation to public health.

Building on existing work in these areas, we will ensure the action plan takes account of the recommendations to continue to:

• make provision for the translation of government press conferences into British Sign Language
• ensure the translation of key announcements into the most frequently spoken languages in Scotland. This is guided by advice outlined in Public Health Scotland's guidance, which is based on up-to-date health board and NHS24 statistics which captures the language used by people when seeking health advice
• continue to involve children and young people in communications strategies for future pandemic

We recognise the need to include digitally excluded audiences and homeless people within the plan. Work has already been undertaken with both audiences, and this will be included as guidance for future activity within the plan as suggested by CIREG.

We will also consider the need for child friendly communication tools and approaches for all, including children and young people. In line with CIREG feedback, we will co-design these approaches with young people.

Once finalised the action plan will be kept under regular review to ensure it takes account of emerging best practice.

Actions and Implementation timescales:

A draft action plan will be created during Spring 2026.

Accountable Officer:

The Director General Corporate, working with the Communications division, will be accountable for the implementation of this recommendation.

Recommendation 17 – A central repository for restrictions and guidance

Chair’s recommendation:

The UK Government, Scottish Government, Welsh Government and Northern Ireland Executive should develop an online portal for use in future civil emergencies, where members of the public can access information on the legal restrictions that apply in their area and any associated guidance. This portal should be easily accessible, and its content should be written in straightforward and unambiguous language.

Scottish Government response:

The Scottish Government commits to working with the four nations to ensure members of the public can find relevant and the most up-to-date guidance and information, including on legal restrictions relevant to them, in a future civil emergency situation.

We understand the intent behind the recommendation, which is to give confidence citizens are receiving appropriate and up to date information and on that basis accept it in principle. We also agree there is a benefit in working with the UK Government and devolved governments, making sure people are able to find the information relevant to them regardless of where they are located.

The Scottish Government consistently aims to provide information to the people of Scotland in the locations they are looking for it, regardless of the structures of government itself. Feedback from CIREG highlighted we must recognise the ways people currently look for, and consume, content from government sources.

The creation of a single resource to which all four nations can publish must account for responsibilities that apply to various sources of data and communication tools within all Administrations. There is significant concern about whether a single portal would be able to account for the complexities of information ownership, the significance of devolved decision-making, and geographic differences of trust in government.

We will continue to work on a four nations basis to plan for public communications during future major emergencies. This includes work to establish shared principles for aligning messaging during civil emergencies whenever appropriate. We believe a responsive approach to communications based on the situation at hand would be more valuable than a single online portal.

CIREG highlighted the need to ensure Scotland-specific guidance is available to Scottish people in the digital locations they are familiar with, and we utilise these locations to communicate pre-emptively as well as in response to critical events. We will continue to engage with community groups through consultation, participation, and user research to understand people’s behaviour around interacting with government guidance. This data will inform our strategy for future emergency communications.

Actions and Implementation timescales:

The Scottish Government will continue to work closely with the UK Government and other devolved governments to improve coordination of public communications. This includes publishing content related to civil emergencies, aligning messaging wherever appropriate, and, in 2026, co‑producing shared principles to support consistent crisis communications. For the Scottish Government this will also include setting out how and where emergency guidance should be published.

Accountable Officer:

The Director General Corporate, working with the Digital Directorate within Scottish Government, will be accountable for the implementation of the Scottish elements of this recommendation