Policy Reunion: Scottish devolution

As part of our Better policy-making project, along with the Political Studies Association (PSA), we are running a series of 'policy reunion' seminars with the Political Studies Association on policies its members ranked as successes of the last 30 years in an Institute survey.

About this event

On 30 March 2011 the Institute for Government and the Political Studies Association held a "policy reunion" of the key players involved in the Scottish devolution process.

Our poll of PSA members put devolution as one of the top three policy successes of the past 30 years. Having failed to deliver devolution in the 1970s, Labour was keen to avoid the mistakes of the past, but remained committed to delivering this policy as part of a wider programme of constitutional reforms proposed in the party's 1997 manifesto. But why did devolution work this time?

Chaired by Institute for Government Director, Andrew Adonis, the panel:

• discussed how the policy was developed and critical decisions were made
• explored the interactions between ministers and civil servants, departments and the outside world
• drew out lessons for present-day policy makers.

The Panel

• Rt Hon Lord Irvine of Lairg, Lord Chancellor and Chair of the Cabinet Devolution Committee (1997-2003)
• Rt Hon Lord Butler of Brockwell, Secretary of the Cabinet and Head of the Home Civil Service (1988-98)
• Sir Muir Russell, Permanent Under-Secretary of State, Scottish Office (1998-99) and Permanent Secretary to the Scottish Executive (1999-2003)
• Rt Hon Pat McFadden MP, Policy Advisor to Rt Hon Tony Blair MP on constitutional matters and devolution (1994-2001)
• Wendy Alexander MSP, Special Advisor to Rt Hon Donald Dewar MP (1997-98)
• Kenneth Mackenzie, Head of Cabinet Office Constitution Secretariat (1997-98)
• Ken Thomson, Principal Private Secretary to Rt Hon Donald Dewar MP Secretary of State for Scotland (1997-99) and First Minister of Scotland (1999)
• Jim Gallagher, Head of Local Government and Europe Group, Scottish Office (1996-99)
• Professor Robert Hazell, Director, Constitution Unit, University College London (1995-)

Report of the event:

Right second time

A "Made in Scotland" solution, a cross-party approach and "Cabinet government at its best" were all crucial to the successful devolution of power to Scotland in the late 1990s. There are some valuable lessons for governments - and oppositions - on how to make reforms stick.

In 1979 the failure of Scottish devolution acted as the catalyst that brought down the Callaghan government. 20 years on, Scottish devolution was one of the big successes of the Blair government. We looked at why in our latest policy reunion

Politicians and civil servants are often thought to be weak at learning the lessons of past failures - but in the case of Scottish devolution there was a real determination not to repeat the experience of the late 1970s. 

Made in Scotland

The first was a clear view that Scottish devolution in the 1970s was a Whitehall and Westminster project, not a Scottish project. No policy development was done on Scottish devolution in government during the 18 Thatcher-Major years - but the time was used by the proponents of devolution to develop a blueprint owned by 'the Scottish elite' at least through the Constitutional Convention.     

A cross-party approach

David Cameron received much credit last year for his "big, open and comprehensive" offer to the Liberal Democrats last year.

But what is intriguing about devolution is it reflected 'big tent' politics - in particular the willingness of the Labour party to offer PR for Scotland - which meant that the moment they achieved power at Westminster, they put in place a scheme which was likely to mean they would have to share power in their Scottish heartland.

Participants noted the crucial breathing space created by John Major's decision to delay the election until May 1997, which allowed the Cook-McLennan cross-party talks to line up a plan for implementation between Labour and the Liberal Democrats before the election.

With a bit of expert help

The one problem with policy making in opposition is the lack of knowledge of machinery of government and how to make things work. Fortunately expert assistance was on hand from the Constitution Unit whose 'Green and Black' book set out the detailed mechanics - and made crucial recommendations on the form of devolution and on the case for a pre-legislative referendum.

"Cabinet government at its best"

New Prime Minister Tony Blair made it clear to Cabinet Secretary Robin Butler and his Cabinet committee chair Lord Irvine that he wanted to move fast on devolution. That put a massive burden on both the Cabinet Office and the Scottish and Welsh Offices, who it had been decided would lead on the policy.

The civil service had had a planning dry run in 1992 and dusted off the old files. But all agreed that the process of getting first the referendum bill, then the detailed legislation, drawn up and approved through the Cabinet committee on Devolution to Scotland, Wales and the Regions met Robin Butler's determination to show that the civil service could deliver for ministers.

Will it last?

As Scotland faces its fourth set of devolved elections, the constitutional settlement seems robust. But the panel pointed out the mechanisms established faced a tougher test as the Coalition's austerity plans bite - and although English voters now accepted devolution, the failure to tackle the financial settlement during the years of plenty could be a source of future tension.

Report by Jill Rutter

More information

• Listen to a podcast of the event (1h:49m: MP3, 32MB)
• Download a case study of the event (PDF, 191 KB)