Foreign Policy (Soft Power)

Jeremy Browne Excerpts

Wednesday 1st February 2012 Westminster Hall

[The Minister of State, Foreign and Commonwealth Office (Mr Jeremy Browne)]

Thank you, Mr Bone, for giving me the opportunity to contribute to this short but important debate. I praise my hon. Friend the Member for Salisbury (John Glen) for securing it. I agree with his two central arguments: first, we need to ensure that soft power is co-ordinated across the Government and is not just seen in Departments and, secondly, it must be properly integrated with hard power, so that we can bring to bear Britain’s collected and varied assets in an effective, focused way on the problems that we seek to address. Let me expand on that, because although that gets to the nub of it, I have the opportunity to speak at greater length.

The starting point for the Government is that there is a great role for soft power—probably a greater role than in the past—in today’s international landscape. By soft power, we mean a state’s ability to achieve preferred outcomes, not by coercion but by persuasion or attraction, building up networks, engaging with people at all levels to increase trust and respect and being prepared to listen and to show respect in turn.

Soft power is especially important as political and economic power spreads south and west. The countries that have traditionally exercised political leadership in the world over several hundred years are no longer able to ally their political roles with such a big share of the world’s economy. Britain—others are in the same position as us—needs to bring to bear a wider range of assets to try to ensure that our position is understood and sympathised with around the world. We have many advantages in our favour, which I will come to.

[Tristram Hunt (Stoke-on-Trent Central) (Lab)]

I apologise for being late entering this debate.

On the growth of power in the east, does the Minister agree that, although we have an extraordinary historical connection with countries such as India and China, it is clear that we can no longer trade on that historical relationship? As we begin to think about soft power, we cannot think that we necessarily have some cultural competitive advantage any more.

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[Mr Browne]

I basically agree. A slightly more complicated answer would be that our historical and cultural connections, which are extensive around the world, can sometimes put us in an advantageous position compared to our competitors, but they sometimes put us in a disadvantaged position.

We should not assume that, just because Britain has a comprehensive range of historical ties with other countries, we are necessarily the preferred partner of choice of the Governments, or the people and companies, in those countries. We should not think that we are able to rest on our historical laurels. We need to ensure that our soft power advantages are continuously updated and are relevant to the interests of the countries with which we engage. Let me run through a few of them, so that hon. Members better understand my point.

It is reckoned by independent observers that four of the top 10 universities in the world are in the United Kingdom. I think that the other six are in the United States. Another way to make that point would be to say that we are the only country apart from the US with universities in the top 10 in the world. At any point, some 400,000 foreign students are studying in this country. That is a huge soft power asset. If people go to Malaysia, for example, as I do, it is striking how many of the political and business elite have studied in British universities and have a depth of understanding of Britain that is greater than would otherwise be so.

We have the second largest number of Nobel laureates—second again to the US. Our museums and art galleries and other cultural assets are envied and admired throughout the world. In respect of more popular culture, it is striking how popular the premier league football fixtures are around the world. They are watched by, I am told, 4.7 billion people in a season. I suppose that a lot of those people will be counted on a repeat basis. Nevertheless, that is an extraordinary amount of total dedication to watching events happening in the UK on television. UK premier league football is watched in more than 200 countries.

In political terms, we are unique—the right use of that word—in being the only country that is a United Nations Security Council permanent member and a member of the European Union and the Commonwealth. We have ties right around the world that are not replicated even by countries that are as significant as the United States of America and China.

My hon. Friend the Member for Salisbury mentioned the BBC World Service and the British Council, and I strongly endorse his support for those institutions. The foremost daily newspaper in shaping global opinion is the Financial Times—a British newspaper—and the weekly periodical that is most influential in shaping opinion around the world is The Economist, which is a British magazine. A persuasive case can be made for the BBC being the broadcaster that is most influential in shaping political opinion around the world.

All those different areas of thought leadership are amazing achievements, which we often take for granted. Not even the United States or, for that matter, Germany, France, China or Russia is leading the debate globally in that respect. Despite having less than 1% of the world’s population, not the British Government but media institutions in Britain are at the forefront of shaping opinions around the world.

I take the opportunity to pay tribute to the Westminster Foundation for Democracy, which my hon. Friend mentioned. It is valued by Members throughout the House for its role in promoting elections, civic engagement and the development of political parties around the world.

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On resuming—

[Mr Browne]

Thank you, Sir Roger, for giving me the opportunity to resume my contribution to the debate. Before we broke for the Division, I was talking about Britain’s soft power advantages and gave a number of examples. I was talking about the Westminster Foundation for Democracy and the significant role that it plays in promoting values that are endorsed with enthusiasm by parties right across the House.

I want to talk about co-ordination across the Government—something that my hon. Friend the Member for Salisbury mentioned in his introductory speech. Departments and publicly funded bodies are facing the challenge of how we can make the most effective use of the money that we have. There is a role for us to identify ways in which we can work even more closely together. We have already undertaken an exercise on how that might work in practice, and we will publish the results later in the year.

We have to tread warily, however. Many of the United Kingdom’s most effective soft power resources are independent of Government control. It is that very independence that makes them valuable—a point that was acknowledged by my hon. Friend in his speech. People who might not wish to talk directly to the British Government will engage with them, so we should not do anything that is perceived as compromising that independence. That does not mean that we should not look for opportunities to work together with our partners as much as possible. I shall give two examples.

First, I was recently in Brazil, where our UK-Brazil season later this year will bring together the Foreign Office, UK Trade & Investment and the British Council, working in tandem with other Departments, commercial organisations and cultural institutions, to promote the UK and to build new dynamic partnerships. Secondly, the Great campaign, launched by the Prime Minister in September, involves the Foreign Office, the British Council, UKTI and VisitBritain. That single campaign brings together all our overseas activity to promote Great Britain under a common banner, to get people from around the world to visit the UK and to do business here. It is expected to deliver 4.6 million extra visitors to the UK, generate tourist spending of £2.3 billion and create almost 60,000 new job opportunities.

The Foreign Office’s work on the Olympics and Paralympics has brought in a wide range of partners, both inside and outside the Government, working together to use the 2012 spotlight to build the reputation and influence of the UK right around the world. They will attract almost 15,000 athletes and will be held before almost 11 million ticket holders and an estimated global audience of 4 billion people. It is a great opportunity for us; they are distinctive events. Together with the royal jubilee this summer, that focus on Britain will be envied by every country around the world—even, I would venture, the United States. The events are important in their own right; they are not public relations events. Nevertheless, we need to be alert to their positive implications for how Britain is perceived globally.

We have been considering how to bring the elements of soft and hard power in a cohesive way into what is sometimes referred to in the jargon as smart power. Military power does not provide the only, or even the best, answer to many of the world’s challenges. Economic and social solutions to intractable problems are at least as important. The building stability overseas strategy, which was launched in July, was the first integrated cross-Government strategy to address conflict issues. Earlier in the debate, we discussed how some of that work had been carried out, and Pakistan was cited as an example of where different Departments and agencies are working together to achieve their departmental objectives, as well as the overall objectives of the United Kingdom Government.

Promoting stability in fragile countries reduces the threat of national and regional conflict. Instability and conflict provide fertile grounds for terrorist and criminal activity, thus preventing economic development and promoting migration. As part of that strategy, we have been working not only with the Ministry of Defence and the Department for International Development, but with key international stakeholders including non-governmental organisations and international partners, to improve our ability to anticipate potential conflicts and take fast and effective action to prevent a crisis and to help build robust societies.

Soft power is not an end in itself, but a capability to be used in pursuit of a wide range of foreign policy objectives. To make the most effective use of soft power, we must recognise not only the strengths and weaknesses of our partners, but how we are perceived by our target audiences. We must be prepared to engage carefully and respectfully with those whom we wish to influence, and we must use all the channels available to us. Soft power must also be fully integrated into policy making and delivery.

I believe that soft power will become more important in the years ahead. In terms of expenditure, Britain has the fourth largest military in the world, and we are the world’s sixth or seventh biggest economy, depending on how that is measured. As I have said, we possess key advantages such as our permanent membership of the United Nations Security Council, and we are leading members of both the European Union and the Commonwealth. Those formal expressions of power remain important in promoting our national interests and foreign policy objectives, although the ways in which countries exercise influence in the world are often becoming more subtle and varied than the exertion of formal power by a Government.

The United Kingdom has many attributes that are admired, such as our education sector, culture, sport and civic society, and that is a huge asset for the country around the world. Where appropriate, the Government are determined to make the most of such attributes, although many of those things are not necessarily led or directed by the UK Government, but are attributes of British society as a whole.

It has been a pleasure to serve under your chairmanship, Sir Roger, and again I congratulate my hon. Friend on giving the House the opportunity to discuss this important issue.