Transparency in action or political fiction? The pre-inquiry phase of the UK COVID-19 Inquiry

This article examines how public inquiries come into being through a detailed analysis of the pre-inquiry phase of the UK COVID-19 Inquiry. We focus on two key points of contestation—around the timing of the inquiry and its terms of reference—and suggest that what is at stake during the pre-stage of an inquiry is its ontological and epistemological orientation. Our analysis traces the emergence of two distinct positions during this phase: a grassroots position (conceiving of the inquiry as a response to the experience of collective grief) and an official position (conceiving of the inquiry as a means of learning lessons). Particular attention is given to the latter position and what it reveals about the rhetorical function of transparency in confirming a political commitment to institutional accountability, at the same time as working towards a particular conception of the inquiry as a practical task, expansive in remit, and future oriented.