Tax fraud is one of the most serious allegations an individual or business can face. In the UK, HM Revenue & Customs (HMRC) has wide-ranging powers to investigate suspected fraud, and in severe cases, it can lead to criminal prosecution and even custodial sentences. However, not every case of suspected fraud is automatically referred to the criminal courts.

Instead, HMRC sometimes offers an alternative: the COP9 investigation. Under Code of Practice 9, individuals suspected of serious tax fraud are given the opportunity to disclose their wrongdoing through the Contractual Disclosure Facility (CDF). In return, HMRC provides an assurance that, if the disclosure is complete and truthful, the individual will not face criminal charges.

This process provides a vital lifeline to taxpayers who have engaged in deliberate conduct but want to correct their position. It enables HMRC to recover unpaid taxes more efficiently while allowing individuals to avoid the severe personal and reputational consequences of prosecution.

In this guide, we’ll explore:

• What the COP9 investigation is
• Who it applies to
• The benefits and risks of engaging with the process
• The steps involved in making a disclosure under the CDF
• Practical strategies for navigating COP9 with professional support

The aim is to provide clarity on a complex area of tax compliance, and to highlight why early, professional advice is essential when facing a COP9 enquiry.

What is a COP9 Investigation?

A COP9 investigation is HMRC’s most serious form of civil enquiry into suspected deliberate tax fraud. It is governed by Code of Practice 9, a formal policy document setting out how HMRC deals with cases where it believes a taxpayer has acted dishonestly to reduce their tax liability.

Purpose of the COP9 Investigation

The aim of a COP9 investigation is not necessarily to punish criminally, but to recover the tax owed. By inviting taxpayers into the Contractual Disclosure Facility (CDF), HMRC encourages voluntary disclosure of fraud in return for immunity from prosecution — provided the disclosure is full and truthful.

This allows HMRC to:

• Recover unpaid tax, interest, and penalties more efficiently
• Avoid the time and costs of a criminal trial
• Encourage taxpayers to come forward voluntarily

For the taxpayer, it provides a structured opportunity to regularise their affairs while avoiding the devastating impact of criminal proceedings.

Key Features of a COP9 Investigation

1. Formal Invitation Letter – Taxpayers under suspicion receive a letter from HMRC offering them the chance to enter the COP9 process.
2. Contractual Disclosure Facility (CDF) – Acceptance of COP9 involves entering into a binding contract with HMRC. In return for immunity from prosecution, the taxpayer must provide a full disclosure of all deliberate tax irregularities.
3. Timeframe for Response – The taxpayer usually has 60 days to respond, confirming whether they accept or reject the offer.
4. Immunity from Prosecution – Provided the disclosure is complete, HMRC agrees not to pursue criminal charges.
5. Severe Consequences for Non-Compliance – If a taxpayer accepts COP9 but provides incomplete or false information, HMRC may withdraw the immunity and initiate criminal proceedings.

Civil vs Criminal Approach

HMRC uses COP9 when it believes tax fraud has occurred but prefers a civil resolution. However, if HMRC suspects very serious fraud — such as organised criminal activity or deliberate concealment of assets offshore — it may bypass COP9 entirely and pursue a direct criminal investigation instead.

Who Does a COP9 Investigation Apply To?

The COP9 investigation process is not available to every taxpayer under enquiry. HMRC reserves it for cases where it believes there has been deliberate tax fraud, as opposed to careless mistakes or innocent errors.

Types of Individuals and Businesses Targeted

A COP9 investigation can apply to:

• High-net-worth individuals suspected of concealing income, offshore assets, or complex financial arrangements.
• Business owners and company directors who deliberately under-report profits, inflate expenses, or operate “dual” accounting systems.
• Professionals and consultants involved in aggressive tax avoidance schemes that HMRC deems fraudulent.
• Individuals with offshore assets who have failed to declare overseas income, gains, or bank accounts.
• Trustees and partnerships where there is evidence of deliberate non-disclosure.

What COP9 is Not Used For

• Innocent errors or carelessness: If HMRC believes mistakes were accidental, it is more likely to open a standard compliance check or a Code of Practice 8 (COP8) investigation.
• Organised criminal fraud: If HMRC suspects large-scale, systematic fraud (for example, VAT carousel fraud or money laundering), it is more likely to proceed directly with a criminal investigation rather than COP9.

HMRC’s Selection Criteria

HMRC does not issue COP9 letters randomly. Investigations are triggered by evidence that points to deliberate wrongdoing, such as:

• Unexplained discrepancies in tax returns
• Intelligence from third parties, including banks or overseas authorities
• Data leaks (e.g., Panama Papers, Paradise Papers) revealing offshore assets
• Whistle-blower reports from employees, competitors, or associates
• Inconsistencies uncovered during previous tax enquiries

Why HMRC Chooses COP9 Over Criminal Prosecution

COP9 allows HMRC to:

• Recover lost tax faster than through lengthy criminal trials.
• Encourage voluntary disclosure of wider fraud beyond what HMRC has already uncovered.
• Avoid the burden of proof required in criminal cases (“beyond reasonable doubt”), relying instead on civil standards (“balance of probabilities”).

The Benefits of Cooperating with a COP9 Investigation

 

When faced with a COP9 investigation, taxpayers often feel overwhelmed, defensive, or tempted to deny wrongdoing. However, resisting HMRC rarely improves the outcome. Instead, engaging fully with the Contractual Disclosure Facility (CDF) can provide several tangible benefits.

1. Immunity from Criminal Prosecution

The most significant advantage of cooperating is the guarantee of immunity from criminal charges, provided the disclosure is complete and truthful.

• Without COP9, HMRC could pursue a criminal case, leading to prosecution, fines, or imprisonment.
• By cooperating, the taxpayer secures protection against these life-altering consequences.

2. Structured and Predictable Process

A COP9 investigation follows a clear framework. HMRC outlines expectations and timeframes, which provides more certainty compared to the unpredictability of criminal proceedings.

• Taxpayers know the deadlines and requirements.
• Negotiations over settlement are handled through a civil process, not a criminal trial.

3. Reduced Penalties

While penalties under COP9 can still be substantial, cooperation often leads to reductions:

• HMRC applies mitigation where taxpayers provide early, voluntary, and comprehensive disclosure.
• Offshore penalties, which can be up to 200%, are often reduced if taxpayers show genuine cooperation.

4. Opportunity to Regularise Tax Affairs

Engaging with COP9 allows taxpayers to:

• Correct years of past irregularities.
• Rebuild a clean tax record for the future.
• Avoid ongoing stress, uncertainty, and risk of discovery.

For businesses, resolving issues through COP9 can restore confidence with investors, clients, and professional partners.

5. Preservation of Reputation

Tax fraud cases that go to criminal court often attract media attention, damaging reputations permanently. By resolving matters through COP9, taxpayers avoid the public exposure and stigma associated with criminal prosecution.

6. Improved Negotiation Position

Cooperating with HMRC shows good faith and can:

• Build trust with investigators.
• Create room for negotiating the scope of disclosures, deadlines, and settlement terms.
• Potentially limit the financial impact by demonstrating transparency.

The Risks of Refusing or Mishandling a COP9 Investigation

While the COP9 investigation route provides a valuable opportunity to avoid prosecution, it is not without risk. Taxpayers who refuse the offer, ignore the deadlines, or mishandle their disclosure can face outcomes far worse than those who cooperate properly.

1. Loss of Immunity from Criminal Prosecution

The greatest risk is losing the protection COP9 offers. If a taxpayer:

• Rejects the Contractual Disclosure Facility (CDF) outright, or
• Accepts but fails to provide a complete and truthful disclosure,

HMRC may escalate the case to a criminal investigation. At that point, immunity from prosecution is no longer available, and the taxpayer could face criminal charges.

2. Increased Penalties

If HMRC determines that a taxpayer misled them or concealed information during the COP9 investigation, penalties are likely to be far higher than if the disclosure had been full and honest.

• Offshore irregularities may attract penalties of up to 200%.
• Domestic fraud may attract penalties up to 100% of the tax owed.
• Cooperation discounts will not apply.

3. Reputational Damage

Unlike civil settlements, criminal prosecutions for tax fraud are often publicised. Businesses and individuals may see their reputations permanently damaged, losing the trust of clients, investors, and professional partners.

4. Potential for Custodial Sentences

If the matter proceeds to criminal court, custodial sentences are a real possibility. Tax fraud is taken seriously by the courts, particularly where concealment was deliberate and sustained.

5. Financial and Emotional Burden of Prosecution

Criminal investigations can take years to conclude, involving:

• Extensive legal costs
• Forensic accounting and evidence-gathering
• Long-term stress and uncertainty for the taxpayer and their family

In comparison, a COP9 investigation provides a more controlled and quicker resolution.

6. Example Case of Mishandling COP9

A business director receives a COP9 letter and accepts the CDF. However, they disclose only part of their undeclared income, hoping HMRC won’t discover the rest. HMRC, through third-party data, uncovers offshore accounts that were omitted. As a result:

• The immunity is revoked.
• HMRC initiates a criminal investigation.
• The director faces prosecution, penalties, and reputational ruin.

Why Mishandling COP9 is Especially Risky

Once a taxpayer has entered the CDF, HMRC expects absolute honesty. Any concealment is seen as deliberate deception, making criminal prosecution more likely than if the taxpayer had rejected COP9 in the first place.

Step-by-Step Process of a COP9 Investigation

A COP9 investigation follows a defined sequence, from HMRC’s initial contact through to final settlement. Understanding the timeline is crucial for taxpayers, as deadlines are strict and missteps can have serious consequences.

1. HMRC Issues the COP9 Letter

• HMRC sends a formal letter to the taxpayer.
• The letter explains that HMRC suspects deliberate tax fraud and offers the Contractual Disclosure Facility (CDF).
• The taxpayer is given 60 days to respond.

Decision point: Accepting the CDF provides immunity from prosecution if disclosure is full and honest. Rejecting or ignoring it leaves open the risk of criminal action.

2. The Outline Disclosure

• If the taxpayer accepts, they must submit an Outline Disclosure within the 60-day window.
• This is a concise summary of all deliberate irregularities, not just those HMRC has already identified.
• The disclosure must confirm whether the taxpayer admits to deliberate tax fraud.

Important: HMRC expects absolute candour. If irregularities are omitted and later discovered, immunity may be revoked.

3. HMRC’s Review of the Outline Disclosure

• HMRC reviews the outline to determine whether it is complete and credible.
• If satisfied, HMRC confirms acceptance and the process moves to the detailed stage.
• If unsatisfied, HMRC may escalate the case, potentially revoking the CDF offer.

4. Preparing the Full Disclosure Report

• In complex cases, HMRC requires a Full Disclosure Report (FDR).
• This report is usually prepared by professional advisers (tax specialists, forensic accountants, or solicitors).
• It typically includes:
  • A detailed narrative of how the fraud occurred
  • Financial schedules showing undeclared income and underpaid tax
  • Supporting evidence and documentation
  • A statement of assets, liabilities, and bank accounts
• The report is signed and certified by the taxpayer.

5. Meetings with HMRC

• HMRC may request face-to-face meetings with the taxpayer and advisers.
• The purpose is to clarify points, verify the disclosure, and ensure nothing has been omitted.
• Professional representation at these meetings is critical to protect the taxpayer’s position.

6. Settlement Negotiations

• Once disclosure is accepted, HMRC calculates the tax owed, plus interest and penalties.
• Penalties depend on the level of cooperation:
  • Full and early disclosure = reduced penalties
  • Partial or late disclosure = higher penalties
• A settlement agreement is drawn up, requiring payment in full or under agreed terms.

7. Closing the COP9 Investigation

• Once settlement is reached and payment made, the investigation is closed.
• The taxpayer avoids criminal charges and has effectively reset their compliance status.
• However, HMRC will continue to monitor future tax behaviour closely.

Example Timeline

• Day 1: COP9 letter received.
• Day 60: Outline Disclosure submitted.
• Month 4–6: Full Disclosure Report prepared and submitted.
• Month 7–12: HMRC review, meetings, and settlement discussions.
• End of Year 1: Settlement reached, investigation closed.

Why Professional Representation is Essential in COP9 Cases

Facing a COP9 investigation is daunting. HMRC has vast powers, specialist investigators, and access to international data-sharing networks. Attempting to manage such a process without professional guidance can be a costly mistake.

Engaging expert representation — usually a combination of tax advisers, forensic accountants, and solicitors — is critical for protecting legal rights, ensuring full compliance, and negotiating the best possible settlement.

1. Navigating the Legal Framework

• The Contractual Disclosure Facility (CDF) is a legally binding agreement.
• Misinterpretation of obligations can result in loss of immunity from prosecution.
• Solicitors specialising in tax fraud ensure the disclosure is complete, truthful, and strategically presented.

2. Preparing a Full Disclosure Report

• A Full Disclosure Report (FDR) requires complex financial analysis and detailed explanations.
• Forensic accountants can reconstruct accounts, calculate liabilities, and prepare evidence that satisfies HMRC’s scrutiny.
• Without professional input, reports may be incomplete, risking HMRC rejection.

3. Managing Communications with HMRC

• HMRC investigators are trained to probe inconsistencies.
• Professional advisers act as intermediaries, ensuring that responses are accurate and legally protected.
• Advisers can challenge HMRC’s assumptions where they are incorrect or excessive.

4. Negotiating Penalties and Settlements

• HMRC penalties are negotiable, depending on the quality of disclosure and cooperation.
• Experienced representatives know how to present mitigating factors to secure significant reductions.
• Advisers can also negotiate payment terms, including staged settlements.

5. Protecting Reputation

• High-profile individuals or businesses risk reputational damage if details of tax fraud emerge.
• Legal advisers can manage disclosure sensitively, reducing the risk of public exposure.
• Professional support demonstrates to HMRC a genuine commitment to compliance.

6. Reducing Stress and Risk of Error

• The COP9 process can last months or even years.
• Professional representation provides clarity and reassurance throughout.
• Advisers prevent taxpayers from making unguarded statements or omissions that could later be damaging.

For expert guidance and trusted support throughout your COP9 case, The Taxcom is here to help you navigate every step with confidence and care.

Common Misconceptions About COP9 Investigations

Many taxpayers who receive a COP9 letter feel confused, anxious, or even suspicious about HMRC’s intentions. Misconceptions about the process are common, but acting on them can put individuals and businesses at serious risk.

Here are the most frequent myths surrounding COP9 investigations — and the realities behind them.

Misconception 1: “HMRC only knows what they ask about.”

Reality: HMRC often knows far more than it reveals in the initial letter. With access to international banking data, whistle-blowers, and sophisticated analytics, HMRC may already have detailed evidence of undeclared income or assets.

• If you disclose only what you think HMRC knows, you risk losing immunity when hidden issues later emerge.
• The CDF requires disclosure of all deliberate irregularities, not just the ones under direct investigation.

Misconception 2: “Accepting COP9 means admitting guilt.”

Reality: Accepting COP9 is not an admission of guilt but an acknowledgement of HMRC’s offer. It is a pragmatic choice that allows taxpayers to resolve matters without the risk of prosecution.

• Many professionals advise clients to accept COP9, even if only minor deliberate irregularities exist.
• Refusing may close the door on immunity, leaving the taxpayer more vulnerable.

Misconception 3: “If I ignore the COP9 letter, it will go away.”

Reality: Ignoring COP9 is one of the gravest civil case mistakes in tax law. Failure to respond within 60 days is treated as a rejection.

• HMRC may then escalate to a criminal investigation.
• Silence suggests non-cooperation and increases penalties.

Misconception 4: “I can handle COP9 without professional help.”

Reality: COP9 is among the most complex tax procedures in the UK. Attempting self-representation often results in incomplete disclosures, excessive penalties, or loss of immunity.

• The disclosure report requires forensic accounting expertise.
• Negotiations with HMRC require legal and strategic skill.

Misconception 5: “Once I disclose, HMRC can’t check further.”

Reality: HMRC does not simply accept disclosures at face value. They review them rigorously, cross-referencing with third-party data and conducting interviews.

• If discrepancies are found, immunity can be revoked.
• Full and truthful disclosure is the only protection.

Misconception 6: “Only large fraudsters face COP9.”

Reality: COP9 is not limited to multi-million-pound frauds. HMRC uses it for any suspected deliberate tax fraud, whether involving hundreds or millions of pounds.

• Sole traders, landlords, and small business owners are regularly subject to COP9.

Need Expert Help with a COP9 Investigation?

If you’ve received a COP9 letter or suspect that HMRC may open an investigation into your affairs, time is of the essence. The right professional support can mean the difference between a manageable settlement and the risk of prosecution.

At The Taxcom, our experienced tax solicitors and advisers specialise in guiding clients through the COP9 investigation process. We ensure your disclosure is accurate, complete, and strategically presented — protecting your rights, minimising penalties, and securing peace of mind.

Contact us today for a confidential consultation and take control of your case before HMRC takes control of you.