The FCO Review of the British CouncilSeptember 22, 2014
UK government departments are now required to conduct triennial reviews of ‘non-departmental public bodies’ and in July the FCO published its review of the British Council. In general terms it concludes that the BC is doing a good job but that consideration should be given to spinning off some of its income generating activities into a commercial entity.
What is interesting though is the what the report tells us about the FCO concept of Britain’s influence in the world or more accurately the lack of one.
If you are going to review something you need some criteria to evaluate against. The report draws on three substantive sets of criteria. Firstly, the contribution to British cultural diplomacy and UK influence, secondly, the purposes of the BC and thirdly the views of stakeholders. If you’ve got three different sets of criteria you need to be clear about how they relate to each other.
The report immediately raises red flags by describing the BC as ‘the main official body for cultural diplomacy’. At the BC being described a ‘cultural diplomacy’ would set nerves jangling but this isn’t the real problem. As I’ve noted before there is no tradition of official thinking about ‘cultural diplomacy’ in the UK. The BC has tended to talk about cultural relations and even in the past the Foreign Office had a Cultural Relations Department. As readers of this blog will know over the past 10 years government discussion has drawn on concepts of public diplomacy and soft power. The report pulls ‘cultural diplomacy’ out of the air and doesn’t provide any supporting intellectual framework.
The second set of criteria are the purposes of the BC set out in its Royal Charter:
- Promote cultural relationships and the understanding of different cultures between people and peoples of the United Kingdom and other countries;
- Promote a wider knowledge of the United Kingdom;
- Develop a wider knowledge of the English language;
- Encourage cultural, scientific, technological and other educational cooperation between the United Kingdom and other countries;
- Otherwise promote the advancement of education.
Hmm, nothing about British influence here.
Thirdly, the review draws on the views of ‘stakeholders’, which variously include government departments, cultural institutions, UK ambassadors and some of the BC’s competitors – especially commercial providers of education services and English language teaching.
The result is that report tends to shift between three stances. Firstly, is the BC doing a good job for British influence, secondly, is it working in accordance with its purposes and thirdly, are the stakeholders happy?
Evaluating an organization against its purposes is relatively straightforward. The report points out that the BC’s ‘society’ strand of work doesn’t fit with its purposes. The irony is that over the last 10 years ‘society’ has been where you find the more kind of projects that the FCO was keen on. It’s when you turn to ‘influence’ that things get difficult. I’m really not sure how you can evaluate an organization against a criterion like ‘influence’ that it doesn’t have a plan for and where the evaluators don’t know what it is and what it looks like. This also feeds into the question of ‘stakeholder’ opinion. Any organization needs to understand what stakeholders think but to make use of such data you need to recognize a few things. Every stakeholder has a perspective (where you stand depends on where you sit), some of these perspectives are inconsistent – particularly for an organization like the British Council – and this may mean you have to trade off some stakeholder views against each other. If you don’t have a clear idea of what the organization is doing it’s difficult to make these trade-offs. This leads to a rather random reporting of ‘stakeholder’ views. For instance there seems to support for the BC doing more arts work but because there’s no in depth analysis of stakeholder views and no theory of influence there’s no intellectual underpinning for this view.
In the appendix of the document that discusses language teaching there’s an example of precisely this kind of trade off. A foreign government is offering a contract for teaching its personnel English, in such a situation it might be OK for the BC to use its status as a government agency to win the business even though this disadvantages commercial operators because of the benefits to the UK. This is one of the few places in the document that tries to balance different perspectives instead of switching between them. The result is a sense that the FCO wants more control over the BC but it’s not sure why other than to ensure that it fills out its financial paperwork properly.
A few years ago I heard representatives of the FCO and the Quai d’Orsay talk about public diplomacy. The Brit talked about budgets, targets and key performance indicators, the French rep talked about the mission of France in the world. France has eventually realized that it may have the overarching concepts but it needs to manage its foreign outreach better, Whitehall needs to realize that managerialism isn’t enough: we need an overarching and enduring theory of British influence.