First Minister Nicola Sturgeon and the co-leaders of the Scottish Greens, Patrick Harvie and Lorna Slater, outside Bute House on 30 August 2021

The Bute House Agreement, officially the Cooperation Agreement between the Scottish Government and the Scottish Green Party Parliamentary Group is 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 Yousaf government.

The Agreement details the way in which the Scottish Government and the Green Group in Parliament will work together, the appointment of Green ministers, excluded policy areas from the Agreement, confidence and supply and dispute resolution.[1] The agreement is accompanied by a shared policy programme, which sets out in detail where the two have 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]

Background

Previous SNP-Green collaboration

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").[7][8] The draft agreement was unanimously endorsed by the SNP's national executive committee.[9]

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.[10]

Agreement reached

On 20 August 2021, following two months of negotiations, the SNP and the Greens announced a new power-sharing agreement.[11][12][13] While not an official coalition, for the first time in Scottish and UK history it offered the Greens two ministerial posts.[14][15][16]

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.[17][18][19]

The agreement is based on the co-operation agreement between the Labour Party and the Green Party in New Zealand, reached in November 2020.[20]

Initial reception

Academic Professor Nicola McEwen suggested that the agreement "sometimes pushes [the SNP] further" particularly on climate, social and fair work policy.[21] 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.[22] 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[23][24][25]

Announcing the deal, Scottish Greens co-leader said that he hoped that party members would see it as an 'extraordinary opportunity' for the party.[26] Former co-convenor Robin Harper called the agreement "disappointing".[27] 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 [28][29] However other members welcomed the chance to influence government policy.

Agreement

While not an official coalition, the parties produced a shared policy programme which only excludes six policy areas.[30][31] This has led to some opposition parties labelling it as a coalition despite not formally being so.[32]

As part of the agreement, the two Scottish Green co-leaders were appointed to ministerial posts.[33] 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.[34]

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

Co-leader of the Scottish Greens[lower-alpha 1] (2008–present)

MSP for Glasgow (2003–present)

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

 Lorna Slater

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

MSP for Lothian (2021–present)

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

 1 August 2019 Incumbent Third Sturgeon Government

Yousaf government

Cooperation agreement

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.[35] 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.[36]

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

It also details oversight, and establishes that:[36][35]

  • 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.[37] 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

The parties agreed a common policy programme, which was reaffirmed under the Yousaf government in its policy prospectus.[38] It covers several topics, including: climate change, economic recovery, child poverty, the environment, energy and the constitution.

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.[20][39] The Alba Party criticised the agreement for a lack of urgency.[40]

Other issues

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.[41][42]

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.[43] Harvie credited tenants' union Living Rent with having "created the political space" for the rent control proposals.[44]

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

Excluded matters

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:[45]

  • 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.[46][47][48]

Aftermath

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

Implementation

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.[49][50] There was also legislation passed to reduced fox hunting and reform gender recognition, although the latter was vetoed by the UK government.[51][52][53] 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.[54][55][56][57]

However, the agreement's policies most associated with the Scottish Greens faced significant challenges.[58] 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.[59][60] 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.[61][62][63]

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.[64][65]

2023 SNP 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.[66]

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.[67][68]

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".[69][70][71] 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.[72][73] This speculation was later confirmed by Harvie, stating that due to Forbes positions "[the power-sharing agreement] would need to be ended".[74]

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.[75][76] The party's co-leaders continue to serve as ministers in the Yousaf government.

Dissent over continuation

After the SNP leadership election, Forbes and Regan continued to advocate for the end of the Bute House Agreement.[77][78] In April 2022, it was reported that 15 SNP MSPs who backed Forbes' leadership campaign are planning to challenge key Bute House Agreement policies.[79][34] 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".[80]

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.[74]

See also

Notes

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

References

  1. ↑ "Cooperation Agreement between the Scottish Government and the Scottish Green Party Parliamentary Group". www.gov.scot. Retrieved 4 January 2024.
  2. ↑ "Scottish Government and Scottish Green Party - Shared Policy Programme". www.gov.scot. Retrieved 4 January 2024.
  3. ↑ "SNP and Greens agree new power-sharing deal". BBC News. 19 August 2021. Retrieved 19 August 2021.
  4. ↑ "DRAFT COOPERATION AGREEMENT between THE SCOTTISH GOVERNMENT and THE SCOTTISH GREEN PARTY PARLIAMENTARY GROUP". gov.scot. 20 August 2021. Archived from the original (PDF) on 22 August 2021.
  5. ↑ Brooks, Libby (20 August 2021). "SNP and Scottish Greens confirm power-sharing deal in historic moment for Greens". The Guardian. Retrieved 21 August 2021.
  6. 1 2 Brooks, Libby (25 March 2023). "Greens indicate deal will end if new SNP leader rejects 'progressive values'". The Guardian. ISSN 0261-3077. Retrieved 3 January 2024.
  7. ↑ "SNP and Greens sign working deal". 11 May 2007. Retrieved 3 March 2023.
  8. ↑ "As it happened: SNP and Greens detail power-sharing deal". BBC News. 20 August 2021. Retrieved 25 August 2021.
  9. ↑ "SNP ruling body endorses deal with Greens". BBC News. 21 August 2021. Archived from the original on 22 August 2021. Retrieved 25 August 2021.
  10. ↑ Brooks, Libby (14 April 2021). "Scottish Greens 'willing to have conversation' on coalition with SNP". The Guardian. ISSN 0261-3077. Retrieved 3 January 2024.
  11. ↑ "SNP-Greens deal pledges indyref2 within five years". BBC News. 20 August 2021. Retrieved 20 August 2021.
  12. ↑ Davidson, Peter (20 August 2021). "SNP and Greens negotiate deal to form power-sharing government at Holyrood". Daily Record. Retrieved 20 August 2021.
  13. ↑ Stephen, Phyllis (28 August 2021). "SNP and Greens strike a deal". The Edinburgh Reporter. Retrieved 1 January 2024.
  14. ↑ "Co-operation deal between SNP and Greens to be revealed this week". The National. 15 August 2021. Archived from the original on 20 August 2021. Retrieved 20 August 2021.
  15. ↑ "Scotland: SNP and Scottish Greens' power-sharing agreement is 'groundbreaking', Nicola Sturgeon says". Sky News. Archived from the original on 20 August 2021. Retrieved 20 August 2021.
  16. ↑ "Scottish Greens enter government as deal done with SNP". STV News. 20 August 2021. Archived from the original on 20 August 2021. Retrieved 20 August 2021.
  17. ↑ O'Toole, Emer (28 August 2021). "Scottish Green Party members vote to back SNP co-operation deal". The National. Retrieved 5 January 2022.
  18. ↑ PA Media (28 August 2021). "Scottish Green membership backs power-sharing deal with SNP". The Guardian. Retrieved 5 January 2022.
  19. ↑ "Scottish Green Party members approve "historic" co-op deal". Scottish Greens. 28 August 2021. Retrieved 5 January 2022.
  20. 1 2 "SNP-Greens deal pledges indyref2 within five years". BBC News. 21 August 2021. Archived from the original on 24 August 2021. Retrieved 25 August 2021.
  21. ↑ McEwen, Professor Nicola (2 September 2021). "Scotland's Green Party and National Party: a new agreement". UK in a changing Europe. Retrieved 30 December 2023.
  22. ↑ Rooney, Stella (14 March 2022). "A marriage not made in heaven: marking the SNP-Scottish Greens coalition scorecard – Scottish Left Review". Scottish Left Review. Archived from the original on 16 March 2022. Retrieved 31 December 2023.
  23. ↑ Scothorne, Rory (19 August 2021). "What will an SNP-Green deal mean for the future of Scottish politics?". The Guardian. ISSN 0261-3077. Retrieved 30 December 2023.
  24. ↑ Brooks, Libby; correspondent, Libby Brooks Scotland (20 August 2021). "SNP and Scottish Greens confirm power-sharing deal in historic moment for Greens". The Guardian. ISSN 0261-3077. Retrieved 30 December 2023.
  25. ↑ Johnson, Simon (24 August 2021). "Nicola Sturgeon's deal with Scottish Greens a 'political wasps' nest', says ex-SNP deputy leader". The Telegraph. ISSN 0307-1235. Retrieved 30 December 2023.
  26. ↑ "As it happened: SNP and Greens detail power-sharing deal". BBC News. 20 August 2021. 'Extraordinary opportunity' for the Greens. Retrieved 3 January 2024.
  27. ↑ Carrell, Severin; Brooks, Libby (26 August 2021). "Former Scottish Greens leader criticises 'disappointing' agreement with SNP". The Guardian. ISSN 0261-3077. Retrieved 3 January 2024.
  28. ↑ "Scottish Greens back historic government deal". BBC News. 27 August 2021. Retrieved 3 January 2024.
  29. ↑ Ramsay, Adam (23 August 2021). "Opinion: Scottish Green members hold unprecedented power. How will they use it?". OpenDemocracy. Retrieved 30 December 2023.
  30. ↑ Duffy, Judith (20 August 2021). "Co-operation deal between SNP and Greens to be revealed this week". The National. Retrieved 20 August 2021.
  31. ↑ Morris, Sophie (20 August 2021). "Scotland: SNP and Scottish Greens' power-sharing agreement is 'groundbreaking', Nicola Sturgeon says". Sky News. Retrieved 20 August 2021.
  32. ↑ "Tories brand SNP-Greens deal a 'coalition of chaos'". STV News. 20 August 2021. Retrieved 3 January 2024.
  33. ↑ McKenzie, Lewis (20 August 2021). "Scottish Greens enter government as deal done with SNP". STV News. Retrieved 20 August 2021.
  34. 1 2 "Slater claims Forbes is 'building a particular faction' for SNP to rip up Greens deal". The Herald. 30 December 2023. Retrieved 4 January 2024.
  35. 1 2 Gilman, Laura; McKay, Sarah (29 September 2021). "Scottish Government-Green Cooperation Agreement and other forms of political agreement" (PDF). Scottish Parliament Information Centre. SB 21-66. Retrieved 4 January 2024.
  36. 1 2 "Shared oversight of this agreement". www.gov.scot. 3 November 2021. Retrieved 4 January 2024.
  37. ↑ "Raising and resolving concerns". www.gov.scot. 3 November 2021. Retrieved 4 January 2024.
  38. ↑ "Politics: First Minister's new policy prospectus will deliver for Scotland". Grampian Online. 25 April 2023. Retrieved 3 January 2024.
  39. ↑ Nutt, Kathleen (20 August 2021). "Indyref2 listed as first priority in SNP-Scottish Greens co-operation deal". The National. ISSN 2057-231X. Archived from the original on 24 August 2021. Retrieved 25 August 2021.
  40. ↑ Nutt, Kathleen (20 August 2021). "Alba say SNP deal with Greens kicks independence into the long grass". The National. ISSN 2057-231X. Archived from the original on 24 August 2021. Retrieved 25 August 2021.
  41. ↑ Parsons, Sophie (20 August 2021). "What does the SNP-Green deal mean for Scotland?". Largs and Millport Weekly News. Retrieved 20 August 2021.
  42. ↑ "Working Together to Build A Greener, Fairer, Independent Scotland" (PDF). Scottish Government and Scottish Green Party. 20 August 2021. Retrieved 20 August 2021.
  43. ↑ Young, Gregor (3 September 2021). "Tenants' voices 'at the heart' of Scottish Government's rent control planning". The National. Retrieved 12 October 2021.
  44. ↑ Harvie, Patrick (25 August 2021). "We've negotiated rent controls for Scotland in our SNP deal – it could make renting and buying fairer". i. Retrieved 11 October 2021.
  45. ↑ Aitchison, Jack (20 August 2021). "The six issues excluded from 'groundbreaking' SNP-Greens deal and why". The Herald. Archived from the original on 9 August 2023. Retrieved 3 January 2024.
  46. ↑ "Greens attack Scottish freeports plan as 'repeat of trickle-down economics'". The National. 12 September 2023. Retrieved 3 January 2024.
  47. ↑ "Freeports are mini tax havens, they should have no place in Scotland". Scottish Greens. Retrieved 3 January 2024.
  48. ↑ Leadmouth, Andrew (13 January 2023). "'Nothing green about so-called green freeports,' say Scottish Greens". The Herald. Retrieved 3 January 2024.
  49. ↑ "Homeowners to help pay £33bn to decarbonise heating". BBC News. 7 October 2021. Retrieved 3 January 2024.
  50. ↑ "Landlords challenge Scottish rent control legislation". Holyrood Website. 20 January 2023. Retrieved 3 January 2024.
  51. ↑ Katharine, Hay (5 October 2023). "Animal welfare concerns, licence confusion and hounds being put down 'inevitable' with new Hunting with Dogs Scotland Act". The Scotsman. Archived from the original on 6 October 2023. Retrieved 2 January 2024.
  52. ↑ "Scotland passes controversial gender-recognition reforms". POLITICO. 22 December 2022. Retrieved 3 January 2024.
  53. ↑ "Court says Scottish gender reform block is legal". BBC News. 8 December 2023. Retrieved 3 January 2024.
  54. ↑ "Analysis: How much more humiliation can the Scottish Greens take?". The Herald. 20 December 2023. Retrieved 3 January 2024.
  55. ↑ "Greenest budget in history makes a stand for people and for planet". Scottish Greens. Retrieved 3 January 2024.
  56. ↑ MacMahon, Peter (31 October 2023). "Patrick Harvie suggests Scottish Greens will back SNP budget at party conference". ITV Border. Retrieved 3 January 2023.
  57. ↑ "New SNP leader Humza Yousaf voted in as Scotland's first minister". The Guardian. PA Media. 28 March 2023. ISSN 0261-3077. Retrieved 3 January 2024.
  58. ↑ "Scottish Greens: A year of coalition friction and binned policies". The Herald. 29 December 2023. Retrieved 30 December 2023.
  59. ↑ "Why has Scotland's deposit return scheme been delayed?". BBC News. 13 February 2023. Retrieved 30 December 2023.
  60. ↑ Stephen, Phyllis (7 June 2023). "Greens say the UK government has "ripped up" devolution settlement". The Edinburgh Reporter. Retrieved 1 January 2024.
  61. ↑ Harper, Rachael (14 November 2023). "Scottish Highly Protected Marine Areas plans scrapped". Fishing News. Retrieved 30 December 2023.
  62. ↑ "Scottish Greens: Council tax freeze broke Bute House Agreement". The National. 29 October 2023. Retrieved 3 January 2024.
  63. ↑ "Slater: SNP's lack of council tax freeze consultation 'frustrating'". STV News. PA Media. 27 October 2023. Retrieved 3 January 2024.
  64. ↑ Anderson, Blair (17 July 2023). "Four steps we can take to grow the Scottish Green Party's success". Bright Green. Retrieved 30 December 2023.
  65. ↑ Maciver, Andy (31 July 2023). "How did the Scottish Greens end up with so much influence?". The Spectator. Retrieved 30 December 2023.
  66. ↑ Slater, Lorna (25 March 2023). "Equality and environmentalism non-negotiable". Scottish Greens. Retrieved 30 December 2023.
  67. ↑ Johnson, Simon (26 March 2023). "Kate Forbes: I'm not afraid to govern Scotland without the Greens". The Telegraph. ISSN 0307-1235. Retrieved 27 March 2023.
  68. ↑ "Ash Regan would 'lead minority SNP government' if Greens left Bute House deal". The National. Retrieved 27 March 2023.
  69. ↑ Slater, Lorna (25 March 2023). "Lorna Slater spring conference speech 2023". Scottish Greens. Retrieved 30 December 2023.
  70. ↑ Harvie, Patrick (25 March 2023). "Patrick Harvie spring conference speech 2023". Scottish Greens. Retrieved 30 December 2023.
  71. ↑ "Greens: New FM must have 'progressive values'". BBC News. 25 March 2023. Retrieved 2 January 2024.
  72. ↑ Brooks, Libby; correspondent, Libby Brooks Scotland (25 March 2023). "Greens indicate deal will end if new SNP leader rejects 'progressive values'". The Guardian. ISSN 0261-3077. Retrieved 30 December 2023.
  73. ↑ Sim, Philip (24 March 2023). "Will the Greens want to stay in government with the SNP?". BBC News. Retrieved 2 January 2024.
  74. 1 2 "Patrick Harvie on Kate Forbes, SNP chaos, Israel, trans rights and achieving net zero". The Herald. 15 October 2023. Retrieved 30 December 2023.
  75. ↑ "Scottish Greens unanimously back Humza Yousaf for first minister". Holyrood Website. 27 March 2023. Retrieved 30 December 2023.
  76. ↑ Stephen, Phyllis (27 March 2023). "Greens Council vote to support the Bute House Agreement". The Edinburgh Reporter. Retrieved 1 January 2024.
  77. ↑ "SNP must end governing deal with Scottish Greens, says Kate Forbes". The National. 6 December 2023. Retrieved 3 January 2024.
  78. ↑ Cowley, Jason (6 December 2023). "Kate Forbes: The SNP must repeal power-sharing deal with the Greens". New Statesman. Retrieved 3 January 2024.
  79. ↑ "Revealed: 15 rebel SNP MSPs prepared to challenge Humza Yousaf's government". The Herald. 2 April 2023. Retrieved 3 January 2024.
  80. ↑ Media, P. A. (1 April 2023). "Ex-minister hits out at Greens and calls for end to powersharing deal". STV News. Retrieved 3 January 2024.
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