Between autonomy and interdependence: Scottish independence and intergovernmental co-ordination

Supporters of Scottish independence have been keen to emphasize that an independent Scotland would maintain close ties to the other nations of the British Isles after independence. These ties - often dubbed 'the British dimension' of independence - would not just be between people and business. It is assumed that governments would also sometimes work together in shared institutions and that some common services may still be delivered north and south of the border. This research explores and evaluates these assumptions, and the impact such associations would have for government and governing. A primary goal is to inform political, policy and public debates on the opportunities and constraints of Scottish independence. It examines the feasibility and likely character of these kinds of relationships between the Scottish government and the (rest of) UK government in the event of independence. How much inter-governmental co-ordination would be necessary? Are existing institutions and processes capable of facilitating relations between two independent countries, and if not, what institutions would need to be put in place? And what would be the power relationship between the key players: could an independent Scotland as a small sovereign country have power and influence in its relations with its much larger and more powerful neighbour? How might these relations be shaped by the institutions and procedures in place, or the profile and salience of the policies under discussion? And how would disputes be resolved?

To help answer these questions, the research takes a focused look at two policy areas - social security and energy. If Scots voted YES in the independence referendum, it is likely that responsibility for these would shift from the UK parliament and government to the Scottish parliament and government. However, overlaps may remain as a result of the shared labour market, shared energy market, the free movement of people, goods and business across the British Isles, and the legacy of shared service provision over many decades. These would require some degree of co-ordination between governments. This project will explore the scope for intergovernmental relations in each of these fields and consider the likely character that these relations may have. We might expect relations to be more manageable in the energy field, where both governments broadly share a commitment to low carbon energy (albeit that the current Scottish government has rejected nuclear energy), but more problematic in the field of social security, given the competing views on welfare reform among the leading parties north and south of the border.

To help shed light on these issues, the project will look to other sovereign countries and their relations with their neighbours. It will study Denmark and its relations with the other Nordic countries, with whom Denmark shares a labour market, energy market, shared intergovernmental institutions and in part a shared culture. The project will also draw insights from Ireland. The Irish Republic has long had intergovernmental relationships and agreements with the UK government, including a common travel area for their citizens that includes shared entitlements to public services. As a devolved territory within the UK, Northern Ireland has responsibility for social security and energy, and must liaise with both the UK government and the Irish government to manage overlaps, matters of mutual concern and shared responsibilities. These comparative cases will be used to understand the dynamics of intergovernmental relations between independent or semi-independent countries, and to help me to develop scenarios of how intergovernmental co-ordination might take shape after Scottish independence.

The research will make a contribution to academic study and be conveyed to broader audiences in a wide variety of public events, media contributions and seminars with key stakeholders in the fields of social security and energy.

This research project aims to respond to an identified need for informed, impartial analysis ahead of the Scottish independence referendum. It has identified three main sets of beneficiaries (i) professional stakeholders working in the energy and social security sectors, including from the public, voluntary and private sectors; (ii) policy-making officials, including civil servants working within the Scottish government and Whitehall, local authority officials, and parliamentarians and their staff; and (iii) the wider public, whose vote will determine the future of Scotland in the referendum.

An Advisory Board will be appointed at the beginning of the project to ensure opportunities to inform and influence these beneficiaries are fully exploited.

The project will include a wide range of activities to benefit user groups, including: producing 5 brief, easy-to-read reports, disseminated widely to user groups and posted on our website; convening two practitioner seminars, with senior stakeholders and officials invited to participate; and a range of public-facing events. The latter include a series of informal 'conversations on independence', as part of a series being planned by the Academy of Government at the University of Edinburgh, scheduled to begin in the spring, and a large public conference being planned by the Academy for November 2013, with the aim of examining the Scottish Government's programme for independence, due to be presented in the autumn. These events would involve a range of speakers and research themes, but would be utilised as an opportunity to disseminate the insights and findings from this ESRC project to audiences of engaged citizens and practitioners. As Director of Public Policy for the Academy, the PI is also in discussion with an external partner with a view to organising a series of panels on independence at the 2013 Edinburgh International Book Festival, building on our successful participation in the festival in 2012.

To reach as broad an audience as possible, the PI will also exploit opportunities to disseminate findings via the media, drawing on her extensive experience and contacts. As well as responding to requests for interview, with the support of the University of Edinburgh Press team, she will actively seek opportunities to participate in relevant scheduled programmes, and will write two op ed pieces for broadsheet newspapers. In addition, she will exploit social media, using Twitter and Facebook to publicise events and link to material posted on the website, as well as to provide regular commentary on issues relevant to the project. She will also produce a Blog, which will be linked to the project website.

Full details of beneficiaries, the Advisory Board, and the planned activities are set out in the Pathways to Impact plan, attached to this submission.