Scotland: A Good Global Citizen - a Scottish perspective on climate, defence, security and external affairs

Global Issues and International Policy

COVID-19

The COVID-19 pandemic has highlighted the need for international solidarity when tackling global issues. As set out in Protecting Scotland, Renewing Scotland: The Government's Programme for Scotland 2020-21, the Scottish Government is sharing best practice, knowledge and expertise in reducing virus transmission and addressing the other harms caused by the virus and in so doing demonstrating Scotland as a responsible European and international partner. This includes a range of activity through Scotland's participation in Horizon 2020 and Horizon Europe.

The Scottish Government has also continued to contribute globally on COVID-19, in particular through our international development work, supporting the COVID-19 efforts of our three African partner countries Malawi, Zambia and Rwanda. This has included working through international organisations such as UNICEF to contribute to activities in our partner countries in support of their governments' national plans.

European Union

The decision of the UK Government to leave the European Union (EU) and pursue the hardest of Brexits, against the clearly expressed wishes of the people in Scotland, represents the biggest change in Scotland's international relations in recent history. For almost 50 years, the people of Scotland have benefited from EU membership, including membership of the European Single Market, the free movement of people and from the EU's position as one of the world's major trading blocs and standard-setters. In turn, the EU has benefitted from our active collaboration, including willing sharing of expertise.

The Scottish Government is certain that the best future for Scotland is as an independent member state of the EU. Until that point in time, the Scottish Government has made clear its ambition to keep pace with EU law in devolved areas, keeping Scotland in step with European partners by the use of the powers at its disposal including those conferred by the Withdrawal from the European Union (Continuity) (Scotland) Act.

EU Values

The Scottish Government will continue to engage proactively and energetically with a wide range of issues on the EU's agenda. As set out in Strategic Priorities for Scotland and the European Union 2020-24, the Scottish Government will remain a committed partner and continue to shape engagement with the EU and EU member states in line with the values that Scotland and the EU both share. The impact of the COVID-19 pandemic has highlighted the need for ambitious and cooperative European action in other areas such as climate change, the rule of law and tackling inequality. The Scottish Government will build on this networked approach to tackle these wider European challenges and further strengthen Scotland's relationships with European partners.

While the UK Government is turning its face away from increased European cooperation – for example, by withdrawing from the Erasmus+ scheme - the Scottish Government values its relationship with our European friends and neighbours, and is determined to build upon it. Steadfastly European, Scotland's past, present and future, which updates Scotland: A European Nation, reflects the impacts of leaving the EU and re-emphasises the Scottish Government's ongoing commitment to European values.

International Network

The Scottish Government will continue to work collectively across all areas of government and particularly through our overseas network to ensure recovery from COVID-19 consolidates existing ties, unlocks further potential and informs Scotland's future approach to multilateral and bilateral engagement. The Scottish Government will continue to invest in this network to enable Scotland to broaden its reach globally, to reduce the damage to Scotland caused by the UK Government's withdrawal from the EU, and to promote Scotland's place in Europe.

International Order

The UK leaving the EU has significantly changed the way the UK, and consequently Scotland, engages with and is represented in international fora at a time when global challenges call for increased international solidarity and rules-based international cooperation. Scotland is, and will always remain, a responsible country which will play a full and constructive role in the international community, sharing the values set out in the EU treaties - respect for human dignity, respect for human rights, freedom, equality, democracy and the rule of law.

The Scottish Government commits to exploring every avenue for Scotland to continue its participation in these vital fora and to champion reform in key institutions including the United Nations (UN) and World Trade Organisation (WTO), calling for the voices of smaller governments and sub-national governments to be recognised and amplified and supporting partners in the Global South in their calls for a system that works for all. As a good global citizen, Scotland will remain committed to international solidarity and cooperation as a good in itself and not simply as a means of achieving a narrow set of domestic objectives.

Arctic

Over recent years, Scotland has deepened its engagement in Arctic platforms and become a trusted contributor to Arctic dialogue. The Scottish Government's desire to expand Scotland's Arctic connections further is set out in the first Arctic Policy Framework, published in September 2019. Scotland is the northernmost non-Arctic nation and shares numerous challenges with neighbours in the High North, especially those stemming from low population density and rurality. The Scottish Government is committed to promoting knowledge and policy exchanges with Arctic countries – both in Europe and in North America – with a view to sharing relevant Scottish expertise internationally while capturing lessons that can be applied domestically. The Scottish Government's continued participation in the Northern Periphery and Arctic programme and similar territorial cooperation initiatives has been jeopardised by the UK's exit from the EU. The Scottish Government therefore intends to redouble efforts to broker opportunities for Scottish stakeholders to collaborate with like-minded partners to contribute to the development of transnational solutions that can strengthen community wellbeing and resilience. In promoting neighbourly engagement with Arctic countries there is opportunity to also address a wider international audience interested in decarbonisation, climate action and sustainable economic growth.

Values and Reputation

For a nation of its size, Scotland has a wealth of 'soft power' resources – in other words, assets making Scotland an attractive, trustworthy partner. Scotland has a distinct international brand and identity, with Scottish culture, food and drink, landscapes, music, tourist destinations, languages and universities being key attractions to people choosing to live, study, work and do business in Scotland. Indeed, Scotland has a disproportionately high profile on the international stage – whether it is through the world class festivals, high ranking universities or leadership in the role in the fight against the climate emergency.

Furthermore, the promotion of Scottish values and the way the Scottish Government has built trust internationally is vital to maintaining international influence. The Scottish Government is, for example, a founding member of the group of Wellbeing Economy Governments (WEGo), which promotes sharing of expertise and transferable policy practices among member governments with an ambition to foster societal wellbeing through their economic policies. The Scottish Government will continue to maximise opportunities that grow people-to-people connections across borders, including education and cultural exchanges. This will help to ensure that Scotland continues to be seen as a reliable and collaborative international partner, whilst promoting Scottish values themselves.

'Soft power' should not become a tool used by governments to deliver a narrow, political agenda; this undermines the very creativity and freedom that are so important to Scotland's international attractiveness and identity. The Scottish Government recognises that a good international reputation is produced by the country as a whole, and we will continue to collaborate with others to promote Scotland on the international stage.

Climate

As Scotland emerges from the COVID-19 pandemic, there is an opportunity to build a greener, fairer and more equal society and economy, while remaining absolutely committed to a just transition to net zero emissions by 2045 and a 75% reduction by 2030.

This year, and in particular the UN Climate Change Conference of the Parties (COP26), which is being held in Glasgow, is a critical milestone for the world to intensify collective ambition and commit to the highest level of required action to address the climate emergency, in a just and inclusive way. The Scottish Government will continue to engage with key international networks, such as the Under2 Coalition and Regions4, to build relationships with other likeminded governments around the world, and to promote collaboration in response to the twin crises of climate change and biodiversity loss.

Climate change and biodiversity loss are inextricably linked and we have an unwavering commitment to tackle them hand in hand. Scotland has taken a key leadership role, working with the UN Convention on Biological Diversity and international networks to contribute to the new post-2020 global strategic framework for biodiversity to be agreed at the UN Biodiversity Conference (COP15) being held in Kunming, China. The Scottish Government published a high-level Statement of Intent on biodiversity in December 2020 which sets out Scotland's commitment to endorse the Leaders' Pledge for Nature launched at the United Nations General Assembly in September 2020, and increase protected areas for nature to at least 30% of Scotland's land by 2030. Scotland's network of Marine Protected Areas (MPA's) already covers 37% of our seas exceeding these international targets.

The journey to net zero within a generation will transform all sectors of the Scottish economy and society. As the pace of the transition increases, the need to ensure it is just and fair for everyone will become ever more important. That is why the Scottish Government is committed to a Just Transition in which wellbeing, fair work and social justice are at the heart of our decarbonisation work.

A Just Transition is central to Scotland's green recovery from COVID-19 and is embedded in Scotland's climate change legislation, and runs throughout the updated Climate Change Plan. It takes a broad look across the whole of the Scottish economy. The Just Transition approach recognises that the scale of the net zero transition will impact everyone, but not equally. The Scottish Government will ensure that decisions take into account different circumstances and enable everyone to access and benefit from the opportunities of net zero whilst supporting those potentially at risk from an unmanaged shift away from fossil fuels.

Similarly, and in line with the Scottish Government commitment to being a good global citizen, Scotland's climate change legislation places the principle of climate justice, and the achievement of the UN Sustainable Development Goals, at the heart of the process for developing future climate change plans. This means recognising that those least responsible for the global climate emergency are being affected first and most severely. The Scottish Government is going beyond its commitment to "do no harm" by making financial contributions to positive development outcomes; for example by launching the world's first dedicated Climate Justice Fund in 2012 to support some of the world's most vulnerable people.

In addition, the £62 million pound Energy Transition Fund (ETF) is a package of investment for the North East that will support the energy sector to grow and transition as Scotland moves to net zero emissions by 2045.

The 2020-21 Programme for Government also committed to the development of a Blue Economy Action Plan to launch a programme of collaborative projects across the public sector, Scotland's science base, marine industries and the marine environmental sector. The plan will set out clear actions to strengthen the resilience of our marine industries, ranging from renewable energy to fisheries (and the marine science, research and innovation which underpin them) and to support coastal communities, recognising the vital importance to our marine economy of the abundant natural capital in Scotland's seas and rivers.

International Trade

The Scottish Government wants Scotland to be a nation that trades based on values, high standards and a low carbon economy, starting with our most important international market – the European Union.

The Scottish Government published its Vision for Trade in January 2021. It underpins how the Scottish Government implements its three cornerstone international economy plans on exports, inward investments and private capital, and articulates the approach that the Scottish Government wants to take in developing future trading arrangements. In the vision, the Government takes five principles and applies them to trade challenges.

Our five trade principles…

• Inclusive Growth
• Wellbeing
• Sustainability
• Net Zero
• Good Governance

…are applied to today's eleven biggest trade challenges for…

Scotland's economy

(1) Influencing the trading environment – goods, services and investment

(2) Digital trade

(3) Cooperation on regulation while regulating in the public interest

(4) Global Value Chains

Scotland's people

(5) Fair trade and the winners and losers from international trade

(6) Supporting public services through trade

(7) Balancing cost, value and protections for consumers

The planet

(8) Climate, nature and trade

(9) Coherence of trade with International development outcomes

(10) Multilateral trading system and dispute settlement

(11) Scotland's role as a trading partner

Scotland's National Performance Framework prioritises sustainable, inclusive growth and wellbeing and affords equal importance to economic, environmental and social progress. In line with that approach, the Scottish Government's equalities and climate change targets, and the five key red lines identified for the US Free Trade Agreement negotiations in March 2020^[1], the following core principles inform the Scottish Government's approach to trade policy:

• Inclusive Growth: Trade should generate inclusive growth for all;
• Wellbeing: Wellbeing is a critical measure of success for trade policy;
• Sustainability: Trade decisions must be guided by economic, social and environmental sustainability;
• Net Zero: Trade policy should operate as a lever to increase progress towards net zero targets;
• Good Governance: We will respect good governance at all times.

Human Rights

Scotland is a modern, inclusive nation which protects, respects and fulfils internationally recognised human rights. As a good global citizen, the Scottish Government is committed to securing democracy, the rule of law and human rights across the world. Through dialogue, the Scottish Government seeks to promote international human rights standards in a manner that has practical impact, and demonstrate leadership and share practical experience of a human rights approach to policy-making and delivery. On 16 March 2021, the Scottish Parliament passed the United Nations Convention on the Rights of the Child (UNCRC) (Incorporation)(Scotland) Bill. Once commenced, Scotland will become the first UK nation to incorporate the UNCRC fully and directly into domestic law to the maximum extent possible within its constitutional powers. The Bill will deliver a revolution in children's rights, requiring that children's rights must be respected, protected and fulfilled. It will drive a culture of everyday accountability for children's rights and require that public authorities act consistently to uphold those rights. Children, young people and their representatives will be able to use the courts to enforce their rights.

The Scottish Government is also taking practical action to secure the progressive implementation of all human rights – civil, political, economic, social, cultural and environmental. The Scottish Government is committed to working with the whole of Scottish society to deliver a shared vision for a Scotland where everyone can live a life of human dignity. Ensuring internationally-recognised human rights have a meaningful, everyday effect is the core function of Scotland's national government. The Scottish Government is also committed to ensuring that an approach that respects rights is at the heart of Scotland's recovery from the pandemic. This will ensure that the services and support which are put in place build on previous successes and are renewed and improved to support better and more equal outcomes for the people of Scotland.

International Development

Global citizenship is both a concept and an attitude which welcomes diversity and global solidarity. As part of the Scottish Government's dual commitment to the UN Sustainable Development Goals, Scotland plays its part as a good global citizen by tackling poverty and inequality at home in Scotland as well as contributing to global challenges including inequality, injustice and poverty, by supporting its partner countries grow in a fair and sustainable way.

In addition to Scotland's contribution to the UK aid budget, the Scottish Government further contributes internationally through its own international development programmes, and efforts to reduce the impact of climate change on the world's poorest communities. The Scottish Government's International Development Fund (IDF) primarily supports and empowers Scotland's partner countries: Malawi, Rwanda, Zambia and Pakistan, including projects that promote equality of women and girls. The separate Humanitarian Emergency Fund enables the Scottish Government to contribute directly to humanitarian disasters, whilst the Climate Justice Fund takes a people-centred, human rights approach to help our partner countries tackle the effects of and become more resilient to climate change.

International solidarity has never been more important as we build back from the widespread impacts of COVID-19, and help others to build back, fairer and stronger. This approach is shared across the Scottish Government and we continue to develop our programmes in response to global challenges and change. Most recently, the Scottish Government set out in the 2020-21 Programme for Government the intention to review our approach to international development - to ensure that work focuses on where it can make the biggest contribution and difference in our partner countries against the backdrop of the new reality of COVID-19. In reviewing the Scottish Government international development programme, Scottish Ministers opened discussions with partner country governments and civil society, European development Ministers and representatives, in addition to Scottish civil society representatives, in order to learn from others about best global practice to the benefit of our relationships with our partner countries.

A new set of Scottish Government International Development Principles, co-developed with input from civil society and academics in our partner countries and Scotland, will lie at the heart of how Scotland seeks to set an example in addressing the issue of systemic racism and inequality in international development, and form one key outcome of the review. The new Principles commit to partner country-led development, collaboration, equality, inclusion and diversity, and will apply not only to IDF funded work, but more broadly across wider Scottish Government international development work as part of the Government's commitment to policy coherence.

The Scottish Government will also implement a range of key cross-cutting changes to the IDF Programme, including:

• further focus in Rwanda and Zambia in line with thematic priorities, whilst maintaining existing agreed themes in Malawi;
• establishing a new, distinct, equalities programme in recognition that COVID-19 is deepening pre-existing inequalities and exposing vulnerabilities in social, political and economic systems, and within that commiting to funding for projects that specifically promote equality of women and girls in Sub-Saharan Africa partner countries;
• refreshing Government funding criteria to support a shift in power to our partner countries, towards increased localisation of development; and,
• establishing a new advisory Global South Programme Panel on international development, which will include experts and academics from partner countries and representatives of partner countries' diaspora living in Scotland, ensuring that Global South voices continue to be heard, at ministerial level, to ensure ongoing dialogue and to drive and support further positive change.

The International Development Review is the start, rather than an end point to a change process of aligning the Scottish Government programme with the new Principles to realise the Government's ambitions to have the best impact possible for our partner countries. We look forward to this new, evolving phase of our approach to international development, and to deepening the ongoing commitment that we have to our partner countries of Malawi, Rwanda, Zambia and Pakistan.

The merger of the Department for International Development (DfID) with the Foreign and Commonwealth Office to form the Foreign, Commonwealth and Development Office in June 2020 raised widespread concern. Not only was the decision taken in the middle of a pandemic but also months before the conclusion of the Integrated Review. Furthermore, there are significant concerns that the merger will dilute the focus DfID had on reducing international poverty and on the world's poorest, instead using the international aid budget for foreign policy, commercial and political objectives.

In the Spending Review published in November 2020, the Chancellor announced that the aid budget would be "temporarily" reduced to 0.5%, reneging on its legally-binding commitment to spend 0.7% of Gross National Income on Official Development Assistance. The UK Government has argued that domestic economic pressures meant such international investment could not be justified. The Scottish Government believes that the Scottish national interest is best served when development assistance is clearly aimed at promoting the economic development and welfare of developing countries, rather than narrow diplomatic or economic objectives. Scottish Ministers have therefore raised their concerns with the UK Government's shift in focus of its Aid Strategy and slashing of the aid budget. This is not a time to be turning our back on the poorest. The failure to invest now in developing nations as they seek to recover from COVID-19 will not only have disastrous short-term impacts and set-backs but could also mean even greater investment will be required in the future.

Migration

Scotland has a long history of welcoming people from all over the world. The Scottish Government believes that migration strengthens society and that the nation benefits from the skills, experience and expertise of people who choose to live, work, study and raise their families in Scotland. Scotland must be able to attract talented people from Europe and across the world to work and study here without excessive barriers, and migration policy should support mobility, collaboration and innovation. Inward migration is vital to Scotland's population growth to ensure our communities are sustainable now and in the future – it is one of the four key building blocks within the Scottish Government's population strategy.

Whilst immigration is a reserved competence, it impacts on a wide range of areas of devolved responsibility including the economy, provision of public services and the sustainability and wellbeing of our communities. Scottish Government Ministers have written to the UK Government multiple times to request engagement, and yet have not been offered a meeting to discuss the impact of the 'points-based' immigration system. UK Government immigration policy is not meeting Scotland's distinct economic and demographic needs. The Scottish Government wants to engage with the UK Government on a tailored migration policy that allows Scotland's communities, economy and public services to thrive.

Freedom of movement across the EU had a positive impact on Scotland. By leaving the EU, ending freedom of movement for EU citizens and instead including them as part of the general international immigration system, the UK Government is making matters worse. The Independent Expert Advisory Group (EAG) on Migration and Population has provided objective evidence of the negative impact on Scotland's economy, public services and communities of the UK Government's immigration proposals. We have called on the UK Government to extend the 30 June 2021 deadline to the EU Settlement Scheme. EU citizens who do not apply to the scheme before the deadline will lose access to work, benefits and other services. Some may face enforced removal from the UK.

Under the new UK Government 'points-based system' the main visa routes are for high earners, with almost no route at all for so-called 'low-skilled' workers. Scotland needs people to contribute at all levels of the economy, in vital, challenging roles in care, construction, food production and elsewhere. The continued focused on 'highly skilled' workers will be disastrous for Scotland's economy and society and would risk acute labour shortages. This approach by the UK Government also ignores the wider issue of social value and the significant positive contribution that people who have moved to Scotland make to our cultural life and to our communities.

In particular, the UK's immigration system does not support Scotland's rural communities, who are experiencing population decline. In their latest report, the EAG proposed three options to develop into a rural migration pilot which could attract people to move to rural areas of Scotland, and potentially be rolled out across other parts of the UK. The UK Government has, so far, ignored the evidence and refused to discuss Scotland's distinct migration needs.

Asylum and Refugee Integration

Asylum and refugee resettlement are matters reserved to the UK Government. However, many of the services that support people, who have sought protection in the UK to settle and integrate into communities, are devolved to the Scottish Government. Scotland has a long history of welcoming asylum seekers and refugees from all over the world through the pioneering and collaborative approach of the New Scots refugee integration strategy. The strategy is a partnership between national and local government and the third sector, with the key principle that integration begins from day one of arrival, and not just when leave to remain has been granted.

Many of the UK Government's policies on asylum do not support the approach and aspirations of the New Scots strategy or of the Scottish Government more broadly. The ability of people seeking asylum to effectively integrate into communities before they have been granted refugee status is hindered, including by the limited financial support they can access, while not being permitted to work. People refused asylum face withdrawal of accommodation and financial support because they are subject to No Recourse to Public Funds restrictions, placing them at risk of destitution and homelessness. Scottish Ministers have consistently pressed UK Ministers on a range of asylum issues to deliver a fairer and faster system that treats people with dignity and respect throughout the process. However, to date there has been little progress.