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An image of the 19 June 2020 gathering in the Cabinet Room in No 10 Downing Street on the Prime Minister's birthday, taken from Gray's final report

The Sue Gray Report is the common name given to the final report of Cabinet Office inquiry into Partygate (Officially the Permanent Secretary's Investigation Into Alleged Gatherings on Government Premises During Covid Restrictions).

Background

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Partygate is the political scandal concerning staff gatherings, mainly in 10 Downing Street, during the COVID-19 pandemic in 2020 and 2021, that contravened public health restrictions, which only allowed certain gatherings to take place at the time, and which contributed to Boris Johnson's downfall as Prime Minister. The first reporting relating to these events was on 30 November 2021 of 10 Downing Street staff gatherings during the 2020 Christmas season. Johnson said rules had been followed, and Downing Street denied that a party took place.

On 7 December 2021, ITV News aired a video clip, that had been widely circulated at Number 10 before the Partygate story first broke. A source, frustrated by the Government's denials, had released it to the news service.[1] In the video, then-Downing Street Press Secretary Allegra Stratton and other Downing Street staff – during a mock press conference on 22 December 2020 – made joking references to a Christmas gathering in 10 Downing Street four days earlier on 18 December 2020.[2] The leaked 47-second clip[3] began with media advisor Ed Oldfield playing the role of a journalist and asking Stratton "I've just seen reports on Twitter that there was a Downing Street Christmas party on Friday night, do you recognise those reports?" In response, Stratton and other Downing Street staff joked about the "fictional party" being just "cheese and wine" and a "business meeting", with "no social distancing".[4]

Reports of further events emerged. In January 2022, the Metropolitan Police opened an investigation into potential breaches of COVID-19 regulations, which led to fixed penalty notices being issued. Johnson made several statements to the Commons about the matter.

Simon Case

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At Prime Minister's Questions on 8 December, Prime Minister Boris Johnson apologised for the video of the mock press conference, describing himself as "furious" about it, but maintained that, as far as he knew from senior staff, a party had not taken place. He also said that he had commissioned an investigation into whether any rules had been broken, to be undertaken by Cabinet Secretary Simon Case.[5][6] On 9 December, it was announced that the inquiry led by Simon Case would focus on three events, two at 10 Downing Street on 27 November and 18 December 2020, and one at the Department for Education on 10 December 2020.[7]

On 17 December 2021, it was announced that Case would no longer lead the inquiry following reports that a party had been held in his own office on 17 December 2020.

Sue Gray

[edit]
Sue Gray, the civil servant who undertook the inquiry

The inquiry was taken over by senior civil servant Sue Gray, Second Permanent Secretary in the Cabinet Office.[8][9] Lord Barwell, former Conservative MP and chief of staff for Theresa May when she was the prime minister, said, "he could not think of a better person for the role". Opposition politicians, Labour MP Chris Bryant and SNP MP Ian Blackford, called for the inquiry to be led by a person independent of the government and civil service.[9] Alex Thomas, the civil service programme director at the Institute for Government, said that Gray, as a civil servant, is not independent of government.[10][11]

In January 2022, ITV reported that Gray's investigation would also cover the 15 May 2020 photo and Dominic Cummings' allegations of parties on 20 May and 13 November 2020.[12]

Gray interviewed over 70 individuals.[13] Gray had reportedly questioned Johnson, by 17 January, about events[14] and also Cummings, who insisted on only answering in written form.[15] Gray also had access to swipe card and other security data on people's movements in and out of 10 Downing Street,[16] and has talked to police officers who were on duty, whose evidence was described by one source as "extremely damning".[17] Sky News reported that Gray had received photos showing Johnson attending events with alcohol.[18]

Gray's report was initially expected in the week beginning 24 January 2022.[19] Labour and the Liberal Democrats asked for all accompanying evidence, including emails and witness accounts, to be published.[20] Deputy Prime Minister Dominic Raab would not confirm that Gray's report would be published in full, and said that Johnson would decide how much detail would be released publicly.[21]

Investigation update

[edit]
Wikisource has original text related to this article:

The Metropolitan Police asked Gray to omit key details from her report of events they were investigating, to avoid any prejudice to their investigation. They later explained that this was so they could collect independent accounts from individuals questioned.[22] As a result, there was uncertainty over when, or even whether, Gray's report would be published.[23][24] Instead of publishing her report, an eleven-page update[25] was delivered first to Johnson and then published later on 31 January 2022.[26] Johnson then made a statement to the Commons.[13]

The update provided a list of 16 gatherings, including some that had not been previously reported in the media,[22] and said that 12 were under investigation by the Metropolitan Police. Of the 12 under investigation, Gray said that she was "extremely limited in what I can say about those events and it is not possible at present to provide a meaningful report setting out and analysing the extensive factual information I have been able to gather". She had decided not to describe the other four dates, writing, "I do not feel that I am able to do so without detriment to the overall balance of the findings".[27][28]

The update concluded that at least some of the gatherings examined did not meet the standards expected of the public at the time. She wrote, "A number of these gatherings should not have been allowed to take place or to develop in the way that they did".[27] It was critical of No 10 and the Cabinet Office,[22][27][13] including over the consumption of alcohol and how some staff felt unable to raise concerns.[27] Gray recommended the government address learnings of the update "immediately", rather than wait for the police investigation to conclude.[13]

General findings

i. Against the backdrop of the pandemic, when the Government was asking citizens to accept far-reaching restrictions on their lives, some of the behaviour surrounding these gatherings is difficult to justify.

ii. At least some of the gatherings in question represent a serious failure to observe not just the high standards expected of those working at the heart of Government but also of the standards expected of the entire British population at the time.

iii. At times it seems there was too little thought given to what was happening across the country in considering the appropriateness of some of these gatherings, the risks they presented to public health and how they might appear to the public. There were failures of leadership and judgment by different parts of No 10 and the Cabinet Office at different times. Some of the events should not have been allowed to take place. Other events should not have been allowed to develop as they did.

iv. The excessive consumption of alcohol is not appropriate in a professional workplace at any time. Steps must be taken to ensure that every Government Department has a clear and robust policy in place covering the consumption of alcohol in the workplace.

v. The use of the garden at No 10 Downing Street should be primarily for the Prime Minister and the private residents of No 10 and No 11 Downing Street. During the pandemic it was often used as an extension of the workplace as a more covid secure means of holding group meetings in a ventilated space. This was a sensible measure that staff appreciated, but the garden was also used for gatherings without clear authorisation or oversight. This was not appropriate. Any official access to the space, including for meetings, should be by invitation only and in a controlled environment.

vi. Some staff wanted to raise concerns about behaviours they witnessed at work but at times felt unable to do so. No member of staff should feel unable to report or challenge poor conduct where they witness it. There should be easier ways for staff to raise such concerns informally, outside of the line management chain.

vii. The number of staff working in No 10 Downing Street has steadily increased in recent years. In terms of size, scale and range of responsibility it is now more akin to a small Government Department than purely a dedicated Prime Minister's office. The structures that support the smooth operation of Downing Street, however, have not evolved sufficiently to meet the demands of this expansion. The leadership structures are fragmented and complicated and this has sometimes led to the blurring of lines of accountability. Too much responsibility and expectation is placed on the senior official whose principal function is the direct support of the Prime Minister. This should be addressed as a matter of priority.

Sue Gray, "Investigation into alleged gatherings on government premises during Covid restrictions: Update"[28]
SNP MP Ian Blackford was ordered to withdraw from the House of Commons after he repeatedly stated that Johnson had misled the House.

In response, Johnson said he would create a new Office of the Prime Minister, review the Civil Service code of conduct, and bring in other measures.[29] In the ensuing Commons debate, SNP MP Ian Blackford was ordered to withdraw from the House of Commons for the remainder of the sitting day, by the Speaker, Lindsay Hoyle, after he repeatedly stated that Johnson had misled the House and refused to qualify his remarks to state that the misleading was "inadvertent".[30][31]

Alleged lobbying before the final report was published

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On 20 May 2022, Sky News reported that, some time before 21 April, Gray had a meeting with Johnson.[32] There was initial confusion as to who asked for the meeting, with Conservative sources saying Gray called the meeting and Gray's sources saying Downing Street had. Later, BBC News said that the original idea came from Downing Street, and Gray then sent the calendar invite for the meeting.[33] It is not clear what was discussed. It was reported that a senior government source said they had talked about whether to include photographs in the report; this was disputed by a spokesperson for Gray.[34][35][33] The Times reported two Whitehall sources saying Johnson suggested that Gray abandon plans to publish her report given the police investigation into events.[36]

Downing Street also said that Johnson and Gray had had a previous meeting around the time her interim report was released.[37]

The Guardian reported allegations that senior civil servants lobbied Gray to leave out some names and some details of the report and that Gray insisted she would not do so unless issued with an instruction.[38]

The Times said that partial drafts of the final report were circulating at Number 10 the day before publication and that three senior civil servants, including Case, lobbied for changes. One alleged change reported by The Times was the removal of details of the 13 November 2020 gathering in the Johnsons' flat. Downing Street denied this.[39] Asked whether Number 10 had in any way influenced the report, Northern Ireland Secretary Brandon Lewis said he was "absolutely confident" that was not the case.[40]

Final report

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Final Report of the Permanent Secretary's Investigation Into Alleged Gatherings on Government Premises During Covid Restrictions.

The police announced that their investigation had been completed on 19 May 2022, and Gray's final report was expected to follow soon after.[41][42] Individuals named in the report were given the opportunity to raise an objection, with the deadline to do that set as 5 pm on 22 May.[43]

The final report was published and delivered to the prime minister on 25 May 2022.[44][45] The 60-page report of the investigation covered 16 different events which occurred on 12 different dates between May 2020 and April 2021.[46][47] Each of these events occurred whilst Covid lockdown regulations were in force and involved gatherings of people. Eight of the events were attended by the prime minister.[46] The investigation found that many of the events breached Covid regulations,[46][48] and that multiple breaches of the regulations had occurred.[47] It was also found that there were repeated instances of staff "flouting" the regulations and the investigation gave an extremely critical assessment of the drinking culture in Downing Street,[48] and that several of the events appeared notably drunken and rowdy,[46] and that some went on into the early hours.[49] Gray said she was disappointed that some of the events may never have been known about if they had not been reported by the media.[50]

The culture and leadership in Downing Street was criticised,[47] and it said senior leadership must bear responsibility for it.[50] There was said to be a failure of leadership and judgment in No 10 and the Cabinet Office, with some of the events being attended by leaders, and many of which should not have been allowed to happen.[46] It said that the officials organising events knew that what they were doing was wrong,[49] and that they renamed events to make them sound less like parties.[49] Staff emails and messages were analysed and showed regular planning of social events,[46] some officials trying to warn that events were a bad idea,[46] a warning sent that bring-your-own-booze garden event could be a "comms risk",[50] and a Reynold’s email that said he "got away" with the bring-your-own-booze event.[50]

The lack of respect for security staff and cleaners was also a concern as they were often treated in an unacceptable way,[46] with Downing Street staff routinely being rude to them.[49] Some said they were fearful of raising concerns,[50] and junior staff thought it was reasonable to attend events as bosses seemed to be condoning them.[48] It said too that Gray was "encouraged" that there had already been changes made to simplify the process of raising directly with the permanent secretary.[48]

Conclusions The general findings set out in my update of 31st January 2022 still stand.

Whatever the initial intent, what took place at many of these gatherings and the way in which they developed was not in line with Covid guidance at the time. Even allowing for the extraordinary pressures officials and advisers were under, the factual findings of this report illustrate some attitudes and behaviours inconsistent with that guidance. It is also clear, from the outcome of the police investigation, that a large number of individuals (83) who attended these events breached Covid regulations and therefore Covid guidance.

I have already commented in my update on what I found to be failures of leadership and judgment in No 10 and the Cabinet Office. The events that I investigated were attended by leaders in government. Many of these events should not have been allowed to happen. It is also the case that some of the more junior civil servants believed that their involvement in some of these events was permitted given the attendance of senior leaders. The senior leadership at the centre, both political and official, must bear responsibility for this culture.

In my update I made a number of general limited findings, I am pleased progress is being made in addressing the issues I raised. I commented on the fragmentary and complicated leadership structures in No 10. Since my update there have been changes to the organisation and management of Downing Street and the Cabinet Office with the aim of creating clearer lines of leadership and accountability and now these need the chance and time to bed in.

I found that some staff had witnessed or been subjected to behaviours at work which they had felt concerned about but at times felt unable to raise properly. I was made aware of multiple examples of a lack of respect and poor treatment of security and cleaning staff. This was unacceptable. I am reassured to see that steps have since been taken to introduce more easily accessible means by which to raise concerns electronically, in person or online, including directly with the Permanent Secretary in No 10. I hope that this will truly embed a culture that welcomes and creates opportunities for challenge and speaking up at all levels.

I also made a recommendation that steps should be taken to ensure that every Government Department has a clear and robust policy in place covering the consumption of alcohol in the workplace. Since then guidance has been issued to all Government Departments.

The matter of what disciplinary action should now take place is outside of the scope of this report and is for others to consider. Nothing set out in this report can be taken as constituting a disciplinary investigation or findings of fact appropriate for such a purpose. However, I do offer a reflection: while there is no excuse for some of the behaviour set out here it is important to acknowledge that those in the most junior positions attended gatherings at which their seniors were present, or indeed organised. I have no doubt that they will have taken the learning from this experience and, while this is not a matter for me, I hope this will be taken into account in considering any disciplinary action.

Many will be dismayed that behaviour of this kind took place on this scale at the heart of Government. The public have a right to expect the very highest standards of behaviour in such places and clearly what happened fell well short of this. It is my firm belief, however, that these events did not reflect the prevailing culture in Government and the Civil Service at the time. Many thousands of people up and down the country worked tirelessly to deliver in unprecedented times. I remain immensely proud to be a civil servant and of the work of the service and the wider public sector during the pandemic.

Sue Gray, "Findings of Second Permanent Secretary's Investigation into Alleged Gatherings on Government Premises During Covid Restrictions"[45]

The report included a few photographs of the gathering.[47] There were eight covering two of the events: the prime minister's birthday event in June 2020, and a leaving event in November 2020.[46] More than 300 photographs had been submitted.[48]

The names of only 15 of the attendees were given, the rest remained anonymous.[48] Gray explained that she decided to name only the most senior staff, those "who knew about and/or attended an event" or were involved in the organisation of one, adding that was "given their wider responsibility for the leadership and culture of the departments, subject to some limited exceptions based on personal circumstances".[48] Boris Johnson, the prime minister was named, as were senior officials Simon Case, and Martin Reynolds who, it was said, appeared to be particularly involved in planning events.[46] Dominic Cummings was also said to have been at at least one event, but it was said that evidence to back his claims that he warned against them could not be found.[49]

Gray chose not to investigate allegations of a party in flat on 13 November 2020,[46] and did not fully investigate that "ABBA party".[49][48]

Each of the events covered was individually described, and details of the regulations in force at the time, what happened, and who attended was also given.[47] At a socially-distanced drinks event on 20 May 2020,[50] staff were warned not to "wave around" bottles of wine.[50] At a leaving event on 18 June 2020, there was karaoke, there was pizza and prosecco, there was excessive alcohol consumption, someone vomited, there was a minor altercation, and staff stayed beyond 3 am, and the cabinet secretary allowed his office to be used for this event.[46][50][48][49] There were 2 leaving events on 14 April 2021 which merged in the No 10 garden, with drunkenness and people leaving after 4 am.[46] With an event on 16 April, the last person left at 4:20 am.[50][48] At the 15 December Christmas quiz,[50] staff were told to leave by back door because of drunkenness.[50] At a Christmas party in December 2020, red wine was spilt on a wall and on stationary supplies,[46] and at a 18 December 2020 event, a panic button was triggered and police turned up.[50][48]

Reactions

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Following the release of Sue Gray's update on 31 January 2022, Conservative MP Andrew Mitchell said he no longer supported Johnson.[51] Former prime minister Theresa May also questioned Johnson's response to Gray's report, saying that people "had a right to expect their prime minister to have read the rules, to understand the meaning of the rules" and to "set an example". She said No. 10 "was not observing the regulations they had imposed on members of the public" and accused Johnson of "either not understanding the rules or believing they did not apply to his team".[52][53][54] In protest over Johnson's handling of the controversy, Guildford MP Angela Richardson resigned from her position as parliamentary private secretary to Michael Gove, the Secretary of State for Levelling Up, Housing and Communities.[55]

On 1–2 February, the Conservative MP for Waveney, Peter Aldous, submitted a letter of no confidence.[56] Three others—Tobias Ellwood, MP for Bournemouth East and Chair of the Defence Select Committee; Anthony Mangnall, MP for Totnes; and Gary Streeter, MP for South West Devon—submitted letters of no confidence in him.[57] By 3 February 2022, ITV News reported that 12 Conservative MPs, 21 MSPs (including Douglas Ross, who is both an MP and MSP), and two peers had called for Johnson's resignation,[58] and BBC News reported that 17 MPs had submitted letters of no confidence.[59] Roger Gale and Charles Walker both wanted Johnson to resign.[60][61]

On 4 February, Newcastle MP Aaron Bell said he had submitted a letter of no confidence.[62][63] The same day, Nick Gibb, former Minister of State for School Standards, also submitted one.[64] Alec Shelbrooke, the MP for Elmet and Rothwell, described Johnson's position as, "indefensible".[65] On 6 February, Tory MPs Iain Duncan Smith and Kwasi Kwarteng both called for Johnson to be given more time.[66]

On 10 February, former Conservative prime minister John Major said Johnson, "broke lockdown laws" and added in his opinion the government felt it "need not obey the rules. ... Brazen excuses were dreamed up. Day after day the public was asked to believe the unbelievable. Ministers were sent out to defend the indefensible – making themselves look gullible or foolish".[67]

Following the 2022 Russian invasion of Ukraine on 24 February, Ross withdrew his letter of no confidence, saying he felt a leadership contest would be inappropriate during the conflict,[68] as did Bridgen.[69]

Alex Chalk, the Solicitor General and MP for Cheltenham, would not defend Johnson after Johnson received an FPN; instead Chalk said senior politicians should "act in a way that is beyond reproach". Karen Bradley, former Secretary of State for Northern Ireland and MP for Staffordshire Moorlands, and Neil Hudson, MP for Penrith and The Border, among others, criticised Johnson. Bradley said, "I do wish to make it clear that if I had been a minister found to have broken the laws that I passed, I would be tendering my resignation now." Hudson said he would not "defend the indefensible" and it was "extremely disappointing" that Johnson and Sunak had been given FPNs. Hudson added, "The fact that the lawmakers went on to break those very laws they brought in to keep us all safe is deeply damaging for our democracy. That situation is untenable." Brdley and Hudson both expressed unease about changing prime minister during the 2022 Russian invasion of Ukraine.[70] Caroline Nokes called on Johnson to resign for a second time.[71]

On 13 April, Tory backbencher Nigel Mills, MP for Amber Valley, said that Johnson's position was "untenable". Separately, Justice Minister Lord David Wolfson resigned in protest.[72][73]

On 19 April, senior Conservative MP Mark Harper said Johnson was now "no longer worthy" of remaining Prime Minister.[74] On 21 April, Tory MP Steve Baker, the former chair of the European Research Group, publicly stated that "the gig is up" and that Johnson should be "long gone by now".[75] On 23 April, Toby Helm and Michael Savage of The Guardian suggested that increasing numbers of Conservative MPs believed Johnson needed to be replaced as prime minister soon and that many were waiting until after the result of the May 2022 local elections to decide whether to replace him.[76] Barry Macleod-Cullinane, who was deputy leader in Harrow, London, said, "We now know that Boris Johnson broke the law and has lied repeatedly to parliament and to us. He's taking us for fools – and we can't let him get away with it."[77]

Following the publication of the Sue Gray report, Julian Sturdy, John Baron, David Simmonds and Stephen Hammond called for Johnson to resign.[78] On 27 May, Paul Holmes, MP for Eastleigh, resigned from his position as Parliamentary Private Secretary to Home Secretary Priti Patel over concerns around "toxic culture" at the heart of government he said was described in the report.[79] Discontent with Johnson among Conservative MPs was growing and many MPs feared losing their seats.[80] In the days following the Sue Gray report, further MPs (Elliot Colburn, Bob Neill, Alicia Kearns, John Stevenson[81] and Steve Brine) publicly declared that they had submitted letters of no confidence, whilst others such as Jeremy Wright called for Johnson’s resignation without declaring whether they had submitted a letter.[82] Andrew Bridgen also stated that he had resubmitted his letter after previously withdrawing it.[83] On 31 May 2022, Andrea Leadsom, a former Conservative minister, wrote, "it is painfully clear to me that given the extent and severity of rule-breaking taking place over a 20-month period, it is extremely unlikely that senior leaders were unaware of what was going on".[84]

On 1 June 2022, two of Johnson's cabinet colleagues challenged the speculation that he would have to resign. The culture secretary, Nadine Dorries, said that the "overwhelming" majority of party MPs still backed him.[85] Dorries said that Partygate was now only a Westminster bubble issue as the public was "ready to move on" and that "The people who most want to get rid of Boris Johnson are Keir Starmer and the SNP".[85]

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