The Role of the FCO in UK Government
Total Page:16
File Type:pdf, Size:1020Kb
House of Commons Foreign Affairs Committee The Role of the FCO in UK Government Seventh Report of Session 2010–12 Volume II Additional written evidence Ordered by the House of Commons to be published 24 November, 8 and 15 December, 12 and 19 January, 2 and 9 February, 9 March and 27 April Published on 12 May 2011 by authority of the House of Commons London: The Stationery Office Limited The Foreign Affairs Committee The Foreign Affairs Committee is appointed by the House of Commons to examine the expenditure, administration, and policy of the Foreign and Commonwealth Office and its associated agencies. Current membership Richard Ottaway (Conservative, Croydon South) (Chair) Rt Hon Bob Ainsworth (Labour, Coventry North East) Mr John Baron (Conservative, Basildon and Billericay) Rt Hon Sir Menzies Campbell (Liberal Democrats, North East Fife) Rt Hon Ann Clwyd (Labour, Cynon Valley) Mike Gapes (Labour, Ilford South) Andrew Rosindell (Conservative, Romford) Mr Frank Roy (Labour, Motherwell and Wishaw) Rt Hon Sir John Stanley (Conservative, Tonbridge and Malling) Rory Stewart (Conservative, Penrith and The Border) Mr Dave Watts (Labour, St Helens North) The following Member was also a member of the Committee during the parliament: Emma Reynolds (Labour, Wolverhampton North East) Powers The Committee is one of the departmental select committees, the powers of which are set out in House of Commons Standing Orders, principally in SO No 152. These are available on the Internet via www.parliament.uk. Publication The Reports and evidence of the Committee are published by The Stationery Office by Order of the House. All publications of the Committee (including news items) are on the internet at www.parliament.uk/facom. A list of Reports of the Committee in the present Parliament is at the front of this volume. The Reports of the Committee, the formal minutes relating to that report, oral evidence taken and some or all written evidence are available in a printed volume. Additional written evidence may be published on the internet only. Committee staff The current staff of the Committee are Dr Robin James (Clerk), Mr Eliot Barrass (Second Clerk), Ms Adèle Brown (Committee Specialist), Dr Brigid Fowler (Committee Specialist), Mr Richard Dawson (Senior Committee Assistant), Jacqueline Cooksey (Committee Assistant), Mrs Catherine Close (Committee Assistant) and Mr Alex Paterson (Media Officer). Contacts All correspondence should be addressed to the Clerk of the Foreign Affairs Committee, House of Commons, London SW1A 0AA. The telephone number for general enquiries is 020 7219 6394; the Committee’s email address is [email protected] List of additional written evidence (published in Volume II on the Committee’s website www.parliament.uk/facom) Page 1 Dr Scott James Ev w1 2 Dr Oliver Daddow Ev w5 3 The Rt Hon Lord Owen CH Ev w9 4 Professor Daryl Copeland Ev w13 5 Dr Graeme Davies and Dr Robert Johns Ev w17 6 Sir Edward Clay KCMG Ev w26 7 Charles Crawford CMG Ev w29 8 The Royal Society for the Protection of Birds (RSPB) Ev w35 9 Professor Tony Chafer Ev w38 10 Professor Ritchie Robertson, Professor Sarah Colvin and Dr Peter Thompson Ev w39 11 LSE IDEAS Ev w40 12 City of London Corporation Ev w40 13 UK Overseas Territories Conservation Forum (UKOTCF) Ev w42 14 Society for Italian Studies Ev w45 15 Anthony Aust Ev w45 16 Oliver Miles CMG Ev w47 17 Sir Michael Wood KCMG Ev w48 18 Sir John Graham GCMG Ev w51 19 Sir David Logan KCMG Ev w51 20 Daniel Korski Ev w54 21 Catarina Tully Ev w57 22 Rt Hon Jack Straw MP Ev w59 23 Peter W Marshall and other former members of the FCO Ev w60 24 Sir Peter Marshall KCMG CVO Ev w62 25 Confederation of British Industry (CBI) Ev w85 26 Professor Hussein Kassim Ev w89 27 Professor Dr Sonja Puntscher Riekmann Ev w92 28 The Rt Hon Chris Huhne MP Ev w93 29 Public and Commercial Services Union (PCS) Ev w93; w104 30 Carne Ross Ev w95 31 Lord Howe of Aberavon CH Ev w96 Organisational charts (as of January 2011): National Security Secretariat, Cabinet Office Ev w107 Foreign and Commonwealth Office Ev w108 cobber Pack: U PL: CWE1 [SO] Processed: [09-05-2011 13:04] Job: 009327 Unit: PG01 Foreign Affairs Committee: Evidence Ev w1 Written evidence Written evidence from Dr Scott James, King’s College London THE CHANGING ROLE OF THE FCO IN THE UK EU POLICY-MAKING PROCESS Introduction The research and recommendations contained in this report are drawn from a doctoral research project titled “Singing from the Same Hymn Sheet? Europeanisation and European Policy Making in the UK and Irish Core Executives, 1997–2007” completed at the University of Manchester between 2005 and 2008, and subsequent research conducted at King’s College London during 2009. The findings are based largely upon the detailed testimonies of 60 serving and former ministers, senior and junior officials, and special advisors drawn from across the main departments of state. The interviews were conducted on a non-attributable basis according to Chatham House rules. The research was supported by the Economic and Social Research Council and is to be published as a monograph by Manchester University Press in 2011.1 Executive Summary — Since 2001 the EU policy making process in the UK has undergone fundamental reform, strengthening the strategic capabilities of the Cabinet Office to the extent that it has become the Prime Minister’s first source of advice and expertise on EU policy. — Although the FCO retains important formal responsibilities for managing EU policy, its role and influence within Whitehall has been challenged by three developments: increasing EU expertise and networking by departmental policy leads; rationalisation and reorganisation within the FCO’s Europe Directorate; and the waning influence of the formal EU cabinet sub-committee. — These changes are driven in part by longer-term structural developments that have undermined foreign ministries across Europe: the growing importance and frequency of European Council summits; the increasingly technical and specialist nature of EU policy dossiers; and the tendency to reach preliminary agreements through informal pre-Council discussions. — The FCO has responded by developing a niche role which seeks to add value to UK EU policy in three respects: by reallocating resources to the UK Permanent Representation in Brussels (UKRep); maintaining and exploiting the UK’s wider diplomatic network of European embassies; and leading efforts to encourage departments to engage more effectively with EU counterparts. — The reforms have had three unintended consequences: exacerbating the existing conflict of interest between the Cabinet Office’s coordination and strategic roles; further blurring the division of responsibilities for EU policy within and between the Cabinet Office and FCO; and contributing to bureaucratic overload by raising expectations beyond that which could be realistically met. — The report recommends that the FCO should concentrate at what it is best at, namely strengthening its wider diplomatic network, renewing efforts across Whitehall to promote more effective strategic networking, and refocusing its activities on formulating and articulating a clearer strategic vision for European integration. — It also recommends that collaboration between the Cabinet Office and FCO could be reinforced by convening a new inter-ministerial committee on EU policy strategy to be chaired by the Prime Minister; and by redefining the role and position of the Minister for Europe so that they are based in both the Cabinet Office and FCO. Detailed Submission Prime Minister’s Office and Cabinet Office 1. The role of the Foreign and Commonwealth Office (FCO) in the management of national EU policy has changed fundamentally over the past decade. For most of the time since the UK’s accession in 1973, the FCO has been at the heart of the process and, crucially, has remained the principal source of foreign policy advice on EU affairs to the prime minister. Traditionally this has taken the form of two private secretaries seconded from the FCO to the Prime Minister’s Office (PMO). By contrast the European Secretariat (COES) and the Overseas and Defence Secretariat (ODS) in the Cabinet Office have traditionally focused on Whitehall coordination.2 2. In 2001 Tony Blair decided to establish a stronger “in house” foreign policy capability within the PMO, leading to the merger of the positions of private secretary and head of the Cabinet Office secretariat. This created a new “Advisor on EU Affairs and Head of the Cabinet Office European Secretariat” and an “Advisor on Foreign Affairs and Head of the Overseas and Defence Secretariat”. Both had offices located within No.10 and were promoted to the rank of permanent secretary. In addition, a small team of four foreign policy advisors was established within the PMO composed of secondees from the FCO and experts from outside government. By contrast arrangements for domestic policy remained largely unchanged. 3. The real significance of these changes has been the extent to which they have reshaped patterns of power dependency at the centre of the Whitehall EU policy network. The COES now serves as the Prime Minister’s cobber Pack: U PL: CWE1 [E] Processed: [09-05-2011 13:04] Job: 009327 Unit: PG01 Ev w2 Foreign Affairs Committee: Evidence first source of advice and expertise on EU policy. Around two thirds of its workload is now prescriptive and devoted to delivering the Prime Minister’s priorities across government, with only one third expended on traditional coordination or dispute resolution. Although departments have become less reliant on COES for coaching, monitoring and advice, its capacity to provide strategic direction has been greatly enhanced as a consequence of the perception that it is much closer to the PMO than other Cabinet Office secretariats and is viewed as an instrument of the Prime Minister’s will across Whitehall.