Bute House Agreement

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First Minister Nicola Sturgeon and the co-leaders of the Scottish Greens, Patrick Harvie and Lorna Slater, outside Bute House on 30 August 2021
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The Bute House Agreement, officially the Cooperation Agreement between the Scottish Government and the Scottish Green Party Parliamentary Group was a power-sharing agreement between the Scottish National Party (SNP) Scottish Government and the Scottish Greens which was agreed in August 2021 to support the Third Sturgeon government and then was reaffirmed to support the First Yousaf government.

The Agreement detailed the way in which the Scottish Government and the Green Group in Parliament worked together, the appointment of Green ministers, excluded policy areas from the Agreement, confidence and supply and dispute resolution.[1] The agreement was accompanied by a shared policy programme, which sets out in detail where the two decided to collaborate.[2]

On 31 August 2021, the SNP and Scottish Greens entered a power-sharing arrangement which resulted in the appointment of two Green MSPs as junior ministers in the government, delivery of a shared policy platform, and Green support for the government on votes of confidence and supply.[3][4] There was no agreement on oil and gas exploration, but the government now argued that it had a stronger case for a national independence referendum.[5]

The agreement was a key part of the 2023 SNP leadership election, with candidates Kate Forbes and Ash Regan critical of it, while Humza Yousaf was supportive.[6]

On 25 April 2024, following a meeting at Bute House, it was decided by the First Minister that the power sharing agreement would come to an end with immediate effect.[7]

Background[edit]

Previous SNP-Green collaboration[edit]

Following the 2007 Scottish Parliament election, the SNP won the largest amount of seats but fell short of an overall majority. As a result of this, then SNP leader Alex Salmond sought to form a coalition with the Scottish Liberal Democrats. When those talks failed, the SNP chose to form a one-party minority government. The Scottish Greens signed an agreement where the Greens supported SNP ministerial appointments, but did not offer support for any confidence or budget votes ("confidence and supply").[8][9] The draft agreement was unanimously endorsed by the SNP's national executive committee.[10]

Following the 2016 Scottish Parliament election, the SNP had once again formed a minority administration. The Scottish Greens supported the SNP in a confidence and supply arrangement which saw them backing budgets by the party and voting with the party on other such votes as the motions of no confidence in First Minister Nicola Sturgeon and Deputy First Minister John Swinney which both failed to pass in 2021 as a result of their backing.

During the 2016 Scottish Parliament election, co-leader of the Scottish Greens Patrick Harvie indicated a "willing to have conversation" with the largest party about entering government.[11]

Agreement reached[edit]

On 20 August 2021, following two months of negotiations, the SNP and the Greens announced a new power-sharing agreement.[12][13][14] While not an official coalition, for the first time in Scottish and UK history it offered the Greens two ministerial posts.[15][16][17]

The Scottish Greens required both the majority of its members and a two-thirds majority of its party council to approve of the agreement in a vote before it could be enacted, both of which were achieved.[18][19][20]

The agreement is based on the co-operation agreement between the Labour Party and the Green Party in New Zealand, reached in November 2020.[21]

Initial reception[edit]

Academic Professor Nicola McEwen suggested that the agreement "sometimes pushes [the SNP] further" particularly on climate, social and fair work policy.[22] She also argues that the two parties had already converged on many issues over the preceding decade. Some commentators on the left praised the agreement for its commitments to railway decarbonisation, rent controls and a just transition fund for the North East of Scotland.[23] Outside the parties, some commentators thought the agreement was too radical and argued that the Scottish Greens are "dangerous, extremist influence on [the] government" and it was condemned by the Scottish Conservatives and Scottish Labour[24][25][26]

Announcing the deal, Scottish Greens co-leader said that he hoped that party members would see it as an 'extraordinary opportunity' for the party.[27] Former co-convenor Robin Harper called the agreement "disappointing".[28] Inside the party, other critics included Edinburgh councillor Chas Booth who felt the agreement did not do enough for local services, while Adam Ramsay, writing in openDemocracy worried the agreement " few... ideas [that] mean picking real fights with people with much power [29][30] However other members welcomed the chance to influence government policy.

Agreement[edit]

While not an official coalition, the parties produced a shared policy programme which only excludes six policy areas.[31][32] This has led to some opposition parties labelling it as a coalition despite not formally being so.[33]

As part of the agreement, the two Scottish Green co-leaders were appointed to ministerial posts.[34] Green MSP Ross Greer is also understood to have an important role in maintaining relations with the Scottish Government and the Green group, and therefore meets with the Deputy First Minister of Scotland fortnightly.[35]

Green Ministers Term start Term end Government
Portrait Name Portrait Name
Patrick Harvie

Co-leader[a] of the Scottish Greens (2008–present)

MSP for Glasgow (2003–present)

Minister for Zero Carbon Buildings, Active Travel and Tenants' Rights (2021–2024)

Lorna Slater

Co-leader of the Scottish Greens (2019–present)

MSP for Lothian (2021–present)

Minister for Green Skills, Circular Economy and Biodiversity (2021–2024)

31 August 2021 25 April 2024 Third Sturgeon government

First Yousaf government

Cooperation agreement[edit]

The cooperation agreement details how the Scottish Government and Green group will work together on matters where both agree. It commits the Government to consulting the Green group in developing legislation which in turn the Green group commit to supporting, bar excluded matters.[36] The parties also agree to a 'no surprises' approach to parliamentary business, meaning they will talk to one another about what they do in the Scottish Parliament, and provides for the appointment of two Green MSPs as ministers.[37]

Green minister and co-leader Lorna Slater (second left) attends a meeting of the Scottish cabinet, 2023.

It also details oversight, and establishes that:[37][36]

  • Scottish ministers will make themselves available with Green MSPs to discuss relevant policies;
  • Green ministers will attend Cabinet at least twice a year;
  • Green ministers will sit on two cabinet sub-committees relevant to their portfolio;
  • The Deputy First Minister will meet with some of the Green MSPs fortnightly to oversee the agreement.

The agreement details a dispute resolution process to resolve any concerns which arise.[38] Should the First Minister, Deputy First Minister and Co-leaders of the Scottish Greens not be able to come to an agreement, the matter may be added to the excluded matters list.

Nicola Sturgeon with Scottish Greens co-leaders Patrick Harvie and Lorna Slater announcing the Bute House Agreement on 20 August 2021

Policy programme[edit]

The parties agreed a common policy programme, which was reaffirmed under the Yousaf government in its policy prospectus.[39] It covers several topics, including: climate change, economic recovery, child poverty, the environment, energy and the constitution.

Scottish independence[edit]

Main article: Scottish independence

The agreement contains a commitment to hold a second referendum on Scottish independence before 2026, and if possible by the end of 2023.[21][40] The Alba Party criticised the agreement for a lack of urgency.[41]

Other issues[edit]

The agreement will see both parties pledge for an increase investment in active travel and public transport, enhancing tenants' rights, a ten-year £500m Just Transition and establishing a National Care Service.[42][43]

Housing-related measures in the agreement include the creation of a new housing regulator, greater restrictions on winter evictions and a commitment to implementing a system of rent controls by the end of 2025.[44] Harvie credited tenants' union Living Rent with having "created the political space" for the rent control proposals.[45]

Scottish Greens co-leaders Lorna Slater (left) and Patrick Harvie (right) were appointed as ministers under the agreement

Excluded matters[edit]

Six matters are excluded from the Bute House Agreement, meaning the Scottish Greens are free to vote against the Scottish Government on these matters, and the Government is free to seek votes from other parties on these issues. These matters (except where mentioned in the agreement) include:[46]

  • the role of GDP measurements and the economic principles of sustainable growth
  • aviation policy (except island connectivity and Highlands and Islands Airports Limited)
  • international relations, such as NATO membership following independence
  • field sports
  • legal status of sex work
  • Private schools

This was illustrated in practice when the Scottish Greens opposed the Scottish Government on the establishment of freeports in Scotland, where the party's MSP Ross Greer voted against it in Committee.[47][48][49]

Aftermath[edit]

Green minister Lorna Slater (furthest right) announcing legal targets for nature recovery

Implementation[edit]

Several key parts of the agreement have been implemented. Soon after the Green ministers took office, Patrick Harvie launched the Heat in Buildings strategy as well as introducing and passing the Cost of Living (Tenant Protection) (Scotland) Act 2022 to aid renters.[50][51] There was also legislation passed to reduced fox hunting and reform gender recognition, although the latter was vetoed by the UK government.[52][53][54] Both years budgets were supported by both parties with little dissent internally and Humza Yousaf's nomination as First Minister was passed with both parties support.[55][56][57][58]

However, the agreement's policies most associated with the Scottish Greens faced significant challenges.[59] Scotland's Deposit Return Scheme, which was spearheaded by co-leader and circularity minister Lorna Slater, was delayed until at least 2025 as a result of the UK Government blocking the inclusion of glass bottles in the scheme.[60][61] A commitment to protect 10% of Scotland's seas as Highly Protected Marine Areas was also dropped, and there was disagreement between the SNP and Scottish Greens over a pledge from Humza Yousaf of a council tax freeze.[62][63][64]

Despite this, both critics and supporters of the Scottish Greens role in government agree that the agreement has allowed the party to have a lot of influence on the Scottish government.[65][66]

2023 SNP leadership election[edit]

Main article: 2023 Scottish National Party leadership election

We will only vote for the SNP’s new Leader to become First Minister if... they respect and share our values of equality and environmentalism. [...] These are fundamental issues for us. They are non-negotiable.

Co-leader Lorna Slater, speaking at the party's 2023 Spring Conference.[67]

On 15 February 2023, Sturgeon resigned from the role of SNP leader and First Minister, this triggered a leadership election. A key issue in the following leadership campaign became around the continuation of the power-sharing agreement with the Scottish Greens, with Humza Yousaf backing it, but Kate Forbes and Ash Regan criticising it. Forbes and Regan both suggested they would not be "afraid" of governing without the Scottish Greens.[68][69]

At the party's spring conference, Scottish Greens co-leaders Patrick Harvie and Lorna Slater declared that while they had "so much more to deliver" in government, they would not do so at "any cost".[70][71][72] The party further stated that it would not endorse a SNP leader who did not follow "progressive values".[6] These comments were widely interpreted as meaning that the Scottish Greens would not support a government led by Forbes or Regan.[73][74] This speculation was later confirmed by Harvie, stating that due to Forbes positions "[the power-sharing agreement] would need to be ended".[75]

After the election of Humza Yousaf as Leader of the Scottish National Party, the Scottish Green Party National Council unanimously voted to direct its MSPs to vote for Yousaf to become First Minister and continue their power-sharing agreement.[76][77] The party's co-leaders continue to serve as ministers in the Yousaf government.

Dissent over continuation[edit]

After the SNP leadership election, Forbes and Regan continued to advocate for the end of the Bute House Agreement.[78][79] In April 2022, it was reported that 15 SNP MSPs who backed Forbes' leadership campaign are planning to challenge key Bute House Agreement policies.[80][35] Former SNP Minister Fergus Ewing criticised the agreement's policies advocated from the Scottish Greens like deposit return scheme, dismissing the party as "a small group of fringe extremists".[81]

In October 2023, co-leader of the Scottish Greens, Patrick Harvie, commented that the critics of the Bute House Agreement in the SNP needed to reflect on the "toxicity" of the experience of minority government, and consider if they wished to return to it.[75] Following the announcement by Màiri McAllan that Scotland would not see a 75% percent reduction in emissions by 2030 an extraordinary general meeting was called by Scottish Green Party members to discuss the future of the agreement.

Termination[edit]

On 25 April 2024, following a meeting at Bute House, First Minister Humza Yousaf stated his intention to terminate the agreement with immediate effect. He hosted a press conference at Bute House where he stated that the agreement had served its purpose and it was decided that the power sharing agreement would come to an end.[82] Several pro-independence figures including SNP MSP Fergus Ewing and Alba Party MSP Ash Regan, welcomed the end of the Bute House Agreement, and "the return to competent government".

The topic of the termination of the Bute House Agreement was the key subject at the First Minister's Questions session held that day with Scottish Conservative leader Douglas Ross, Scottish Labour leader Anas Sarwar, Scottish Liberal Democrats leader Alex Cole-Hamilton welcomed the termination but strongly criticised and questioned Yousaf's ability as First Minister following the termination of the agreement. Following First Minister's Questions, the Scottish Greens co-leaders Patrick Harvie and Lorna Slater held a press conference where in which they stated that the decision from the SNP government to terminate the Bute House Agreement was "an act of political cowardice" and "sold out for future generations" before accusing the SNP leadership of appeasing the right-wing section of the party.[83]

Motion of no confidence in Humza Yousaf[edit]

Scottish Conservative leader Douglas Ross announced to the Scottish Parliament that he had lodged a motion of no confidence in Yousaf following the termination of the agreement, having stated that the Scottish Greens should have had no place in government. It was later announced that Scottish Labour, the Scottish Liberal Democrats and the Scottish Greens would back the motion brought forward.[84] The earliest a vote can be held is 1 May 2024.[85]

See also[edit]

Notes[edit]

  1. ^ The office was known as co-convenor of the Scottish Greens until 2019.

References[edit]

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External links[edit]

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