For the large majority of enterprise use cases, RAG is the better first move, for three reasons that have nothing to do with model quality.
Your data changes. With retrieval, updating knowledge is updating a database. With fine-tuning, it is a retraining run and a regression pass, every time.
You need to know where an answer came from. Retrieval can return the document the answer was drawn from, which makes citation and traceability possible — the model can still misattribute, so citations are checked rather than trusted. A fine-tuned model cannot cite its sources reliably.
Permissions. The retrieval layer can enforce who may see what at query time, so a junior employee's question cannot surface board material. A fine-tuned model cannot un-learn data per user.
The working rule: retrieval for knowledge, fine-tuning for behaviour — and the two combine, with a fine-tuned model as the generation engine inside a retrieval architecture.