On 4 March 2024, the Scottish Government published the latest policy paper in its Building a New Scotland series which in the Scottish Government’s words “together form a prospectus for an independent Scotland”. This is the eleventh paper in the series.
The latest paper focuses on An independent Scotland’s Place in the World which sets out the current Scottish Government’s vision for an independent Scotland’s foreign, defence and security policy. The paper will be debated in the Scottish Parliament on 5 March 2024.
To inform the debate, this blog outlines some of the key issues covered in An Independent Scotland’s Place in the World (Scotland’s Place in the World).
Why independence from a foreign affairs perspective?
In the introduction to Scotland’s Place in the World, the Scottish Government sets out why it believes independence would be beneficial from a foreign policy perspective:
“Scotland becoming independent will mean that we would be able to represent ourselves on the international stage in our own right. We would be able to deepen the partnerships we already have, work hard to develop new ones and, through all the work we do, fully reflect the values we seek to promote…
.. More generally an independent Scotland would seek to be an open, engaged and positive international partner.”
An independent approach to defence and security policy
Scotland’s Place in the World sets out a four-pillar approach to defence policy in an independent Scotland. This focuses on:
- An application to join the North Atlantic Treaty Organisation (NATO) and a commitment to defence spending of 2% of Gross Domestic Product (GDP).
- As an EU member-state (see another of the Building a New Scotland publications – Independent Scotland in the EU) participation in the EU’s Common Security and Defence Policy.
- Membership of the Organization for Security and Co-operation in Europe (OSCE).
- Cooperation with Scotland’s neighbours across the British Isles to “ensure mutual safety”.
On NATO membership, Scotland’s Place in the World outlines what membership would mean in practice:
- Defence spending of 2% of Gross Domestic Product (GDP), recognising NATO’s enduring commitment to invest in defence capabilities.
- Alignment with NATO’s defence principles, contributing to the global alliance as an active partner.
- Working with neighbouring members in defence of the North Atlantic and High North region, with a likely focus on the strategically important Greenland–Iceland–UK (GIUK) Gap.
- Provide conventional forces to NATO operations in support of Treaty objectives and participate in joint exercises conducted by NATO and by neighbouring countries, including the UK, EU and Nordic states.
- Contribute forces to NATO and UN-led international humanitarian and peacekeeping missions.
- Work with NATO allies towards worldwide nuclear non-proliferation and disarmament.
The paper also addresses the shared security requirements of the British Isles and commits to working with Ireland and rUK:
“An independent Scotland’s position, sharing a landmass with the rest of the UK and proximity to Ireland, demands, as a matter of common sense, cooperation on issues of defence and security. This happens between the UK and Ireland now. An independent Scotland’s most enduring defence and security partnership would be with the UK and Ireland and would require working collaboratively to ensure our mutual safety.”
The paper also proposes that an independent Scotland’s defence policy would be based on only participating in:
“overseas military operations that are lawful, approved by Scottish Ministers, and authorised by the Scottish Parliament.”
On the question of legality, the paper sets out that military operations would need to be in accordance with the United Nations Charter. The Scottish Government argues that this approach would not limit Scotland’s ability to act either in self-defence, nor conflict with NATO’s Article 5 commitment to collective defence.
Scotland’s defence capability
In terms of Scotland’s defence capability, Scotland’s Place in the World commits to “a comprehensive, expert-led Defence and Security Review” ahead of independence.
The Scottish Government states that following negotiations and upon independence, Scotland:
“would inherit significant military establishments and infrastructure. These establishments would support the armed forces of an independent Scotland and, with agreement, would also continue to be available to our international partners.”
Scotland’s Place in the World sets out that an independent Scotland’s Joint Forces Headquarters would be based at Faslane (currently home to the UK’s nuclear weapons) and that following an independence vote there would be joint arrangements with the UK Government focussed on
“working with the UK for a transitional period, and a timetable for UK forces to gradually draw down their presence in Scotland as our independent capability builds up, while recognising that our most enduring security partnership will be with the UK.”
Nuclear weapons
Scotland’s Place in the World reiterates the current Scottish Government’s view that nuclear weapons should not be placed in Scotland. As a result, the paper states that:
“nuclear weapons should be removed from Scotland in the safest and most expeditious manner possible following independence.”
The Scottish Government paper states that the money saved on nuclear weapons could instead be spent on conventional forces and national security and intelligence infrastructure. In addition, the Government argues that removing nuclear weapons from Scotland would not be an obstacle to NATO membership as “only a minority of NATO members host nuclear weapons”.
National Security
Scotland’s Place in the World sets out plans for an independent Scotland’s national security to be supported by the establishment of a single Scottish Security and Intelligence Agency. According to the Scottish Government:
“This new body would support Scotland’s role as a good global citizen, contributing to national security whilst promoting and protecting human rights, the rule of law and democratic values.”
Foreign policy – commitment to being a good global citizen
Scotland’s Place in the World sets out a commitment to an independent Scotland adopting a role as a “good global citizen”. According to the Scottish Government this means:
“Independence would also mean that Scotland gets to determine the type of state it wants to be on that world stage – one that acts based on its values and principles, promotes human rights and development, and builds partnerships with other countries and international organisations to address global challenges. An independent Scotland would be a good global citizen, working towards peace and security in the interests of Scotland’s people.”
The paper sets out the commitments the Scottish Government believes would encapsulate being a good global citizen including:
- Offering international leadership to tackle the climate and biodiversity crises.
- Meet the UN target of 0.7% of Gross National Income on official development assistance (ODA) and establish this commitment in law.
- Ensure ODA spend is informed by a feminist approach helping to ensure a focus on inclusion.
- Establish a new ministerial portfolio dedicated to international development (the portfolio currently sits within the Minister for Culture, Europe and International Development’s remit).
- Promoting climate justice and advocate for global vaccine equity or for debt relief.
On the distribution of its ODA budget, the Scottish Government highlights that:
“As a medium-sized donor, an independent Scotland would be a core and voluntary contributor to major multilateral organisations. These multilateral connections would be an important way for an independent Scotland to achieve impact, including through the UN, the World Bank and, of course, the EU. Working multilaterally would allow Scotland to pool resources with others and have an impact on poverty and redress inequalities at a global scale. Doing so could support those countries which bear the brunt of climate change caused by the development from which countries like Scotland have benefited. We would also be better placed to champion the perspectives of the Global South on climate justice and advocate for global vaccine equity or for debt relief.”
Climate and environmental action
Scotland’s Place in the World sets out the Scottish Government’s belief that an independent Scotland could lead on international issues such as tackling climate change and biodiversity loss. According to the Scottish Government, Scotland could follow the example of other smaller countries such as Finland:
“To lead on issues where we can have a real impact, focusing international effort and resources appropriately.
For example, Scotland could demonstrate how a fair transition to net zero greenhouse gas emissions is possible. We could show how we build resilience to the impacts of climate change.”
Commitment to international treaties
Scotland’s Place in the World sets out that independence would give Scotland the opportunity to agree and sign international treaties on its own terms and based on Scotland’s interests. It states that an independent Scotland could also:
“work with like-minded partners to advance an ambitious, progressive agenda and secure agreements in international forums aligned with our values and interests.”
On treaty ratification, the Scottish Government suggests that the Scottish Parliament in an independent Scotland should be fully involved in the scrutiny and ratification of all international treaties.
Scotland’s Place in Europe also states that the current Scottish Government is committed to honouring the UK’s current international treaties, conventions, and agreements upon independence.
Human rights
Whilst highlighting that Scotland is already party to more than 20 major international human rights instruments, Scotland’s Place in the World states that the Scottish Government would seek to extend this coverage:
“With independence, Scotland would have the opportunity to become a state party to treaties, conventions or agreements which the UK has not signed or ratified. That includes being able to identify areas where we could do things differently or go further than the UK, for the benefit of Scotland and our partners around the world…
… Similarly, an independent Scotland could decide whether to carry forward or remove any of the UK’s declarations and reservations which qualify the extent to which the provisions of some treaties currently apply to it.”
Asylum and refugee framework
As part of the commitment to being a good global citizen, Scotland’s Place in the World states that an independent Scotland would be an active participant in global cooperation to respond to migration and displacement issues.
In the event of independence, the Scottish Government commits to making “the refugee and asylum system fairer and more streamlined and to treat people with dignity and respect” with the asylum process in an independent Scotland administered by a new Scottish Asylum and Refugee Resettlement Agency. According to the Scottish Government:
- The new approach would be underpinned by an emphasis on fair, socially responsible and thorough decision-making, with clear adherence to human rights and equality principles and to the rule of law.
- All asylum processing would take place in Scotland, with no offshoring to other countries.
- If an asylum seeker is granted refugee status, that would come with the status of settlement in Scotland.
On refugee resettlement, the Scottish Government states that:
“The Scottish Asylum and Refugee Resettlement Agency would work with the UN High Commissioner for Refugees to identify refugees with the most pressing needs and no durable solution in their current location who could come to Scotland.”
Scotland’s Place in the World also states that an independent Scotland as a member of the European Union, would fully participate in EU refugee resettlement and relocation initiatives.
Scotland’s international representation
Scotland’s Place in the World sets out an approach involving developing Scotland’s current international footprint following independence. It states:
“Independence would, for the first time, enable Scotland to have a dedicated diplomatic network devoted to promoting and protecting Scottish interests. Alongside providing the necessary consular support for our citizens, these networks would promote Scotland as a hub for innovation, trade and investment.”
According to the Scottish Government, independence will lead to Scotland having a seat at the table at the United Nations, European Union and “other important global and regional forums”. An independent Scotland would also seek to remain a part of the Commonwealth.
Scotland’s Place in the World also sets out what an independent Scotland’s international footprint might look like:
“An independent Scotland’s international network would grow and adapt over time. At the point of independence, this Scottish Government would establish embassies in: London, Dublin and Washington D.C., to foster relations with our closest neighbours and partners; key EU capitals; our partner countries in Africa; Canberra, Wellington, New Delhi, Islamabad and Ottawa, in recognition of our strong people to people links; and in our most important trading destinations, including in the Middle East and Asia – with Beijing, Tokyo, Singapore and Abu Dhabi initial priorities…
… In addition to embassies and consulates, this Scottish Government would establish Scottish permanent missions to the key international organisations which an independent Scotland would plan to join, including the UN and its agencies, the EU, NATO, the Council of Europe, and OSCE.”
Conclusion
Scotland’s Place in the World sets out the current Scottish Government’s proposals for what an independent Scotland’s defence, security and foreign policy might look like. It is a snapshot in time as it represents the thinking of the current Scottish Government rather than the approach that might be taken by a different Scottish Government in future in the event of independence.
The paper seeks to identify a number of ways in which a Scottish defence or foreign policy would differ from the current UK Government’s foreign policy, for example seeking to rejoin the EU. However, there are also a number of ways in which the defence and foreign policy approach would seek continuity. This includes in respecting the international rules based system and seeking membership of international organisations such as the United Nations and NATO.
Iain McIver
SPICe Research