sou · GZB321 · 2011-03-08 00:00:00 — It is the Inquirys view that better follow-up should form the basis of discussions on resource allocation for foreign policy operations and presence abroad. The Inquiry considers that showing results and discussing the effects of foreign policy operations is also an important part of making clear to the outside world how the works. The consultancy study for Diplomacy (annex 10) provided support for some of the manage- ment ideas considered by the Inquiry. In order to work effectively and smartly, the must seek cooperation solutions with like-minded count- ries. This can concern just about everything from alliances to jointly pursue an issue, to creating effective local solutions and operational synergies with other missions. Deeper foreign policy cooperation within the EU and the crea- tion of the EEAS offer new opportunities for Member States that must be used. The Inquiry considers that must take a strong proactive role in creating an efficient and balanced European foreign service. The Inquiry considers that this may require increased resources in the short and medium term. However, efficiency gains should be possible in the long term. But foreign service is the sum of the Member States interests, and in order to assert priority interests within this context, strength will be needed in Swedish foreign policy and the . must dare to look to new working methods. In a complex world, where more actors besides nation states are clearly creating and influencing international develop- ments, it is natural for a foreign service of today to invest in broad- ening its networks beyond state-to-state relations. The Inquiry, therefore, proposes that the strengthen public diplomacy efforts so that the image of and the Swedish message reaches a broader international audience, thereby increasing the impact of Swedish interests. International trade development and promotion is a core activ- ity for the , and for other parts of the Government Offices as well. This must be seen as a broad and long-term activity with links to innovation, employment and future competitiveness. The Inquiry considers that the large number of agencies in this area must act based on jointly formulated objectives so that they can be efficient and complement each other. Therefore, the Inquiry proposes that a responsible group be estab- within the Government Offices under the leadership of the State Secretary for Trade. It should work towards harmonised app- ropriation directions for the agencies beneath it and it should be given responsibility for coordinating the distribution of resources. The role of the should be made clearer and uncertainties concerning the status of the Trade Commissioner should be ironed out. The Inquiry is also in favour of greater competition within export promotion, while stressing the import- ance of the Government having effective instruments for public trade development and promotion at international level. Cooperation must be strengthened between export promotion and investment promotion, and synergies with aid and develop- ment cooperation must be used. Under the term economic diplomacy, trade development and promotion is linked to the broader promotion of eco- nomic interests. It is an umbrella term for decision-making, policy formulation and the promotion of a countrys public-economic and business interests. Areas such as financial stability, investment policy, financial flows, bilateral and multilateral economic negotia- tions and agreements, technology and innovation transfer, and development cooperation are included. The MFA should consider how it, and the Government Offices, can work more coherently with economic diplomacy. For Swedish development cooperation, the Inquiry presents a number of proposals aimed at a clearer division of roles between the MFA as political decision-maker and the (Sida) as the agency respon- sible for implementation. Reforms in this direction have been implemented by Sida since the Inquiry was appointed. Compari- sons are made between a number of countries that do not have an equivalent division between government and government agency. The Inquiry notes that Sida has to complete the ongoing reform- programme with a view to becoming an agency for implementa- tion, follow-up and quality of development assistance, but at the same time maintaining competence in relevant policy areas so as to fulfil its mission. The Inquiry considers that the MFA must have the competence to clearly and smoothly steer the aid administration beneath it and proposes that the role of the embassies as implementers of aid be made clearer. The fact that development cooperation is linked to other policy areas is manifested in the Governments Policy for Global Deve- lopment. The Inquiry considers that this could be developed further. The Inquiry stresses that statutory duties and services, primarily migration activities and consular services, are core activities of the ,. A good and quality-assured service must be provided to the . Migration policy and its implementation must be seen within the Government and the Government Offices as a whole, regard- less of which appropriation is financing the operations. The MFAs capacity in the area must extend beyond purely taking responsi- bility for the resources allocated to handling migration matters at missions abroad. For the increasingly complex consular activities, the Inquiry considers that developed cooperation with responsible Swedish agencies is necessary. The MFA must invest in communica- tion about the scope of consular services in order to counter mis- about how far the Governments consular service for citizens extends. Follow-up of statutory duties and services must be improved in order to make efficiency gains and more balanced financing poss- ible. If international interests are to be successfully pursued and defended, and if foreign representation is to function well abroad, the Government Offices and the must have the right competence. They are knowledge-based organisations that must be able to support the Government in an optimum way in this work. The Inquiry considers that the Swedish must contain a broad variety of capabilities and that the needs of the organisation must take priority. A long-term skills provision strategy and an operational action plan are needed for long-term planning in the area of human resources, for recruitment, stimulating internal and external mobility, and for placing, developing, retaining and phasing out staff. In the Inquirys view, the must have a more open view of external staff mobility. It is proposed that mobility be stimulated through incentives, including within the Government Offices. External competence, e.g. from the business sector and associated agencies, must be attracted. At the same time, the requirements of the operations mean that the must have a strong core of officials with diplomatic competence and foreign policy breadth. These needs should continue to be met through the recruitment of diplomats. The Inquiry proposes that a re-established system of group recruitment to the Government Offices that strengthens the con- cept of one authority should cooperate closely with the Swedish Diplomatic Training Programme. The generation shift that is under way in the should be used to improve the gender and diversity balance in different staff groups. Work on the Government Offices plan in this area must be strengthened in the . When managers are appointed, great importance should be attached to applicants managerial qualities and knowledge of administration. The staff of the must possess good knowledge of the Government Offices preparatory processes. Department must have a clear mandate and work strategically, e.g. with support from better staff moni- toring and evaluation systems. The Government Offices must enable employees to serve in different kinds of locations and move within the service on a regular basis, regardless of their family situation. The communication and information society offers opportunities to create a more effective Swedish presence abroad. But it has not replaced the need for diplomatic representation abroad. The Inquiry considers that should have a presence abroad where it can be of greatest benefit for looking after Swedish inter- ests and for providing statutory services. The direction of activities and strategic placing of foreign representation must therefore enjoy support from the entire Government Offices through consultation in the above-mentioned state secretary group. A strategic discussion on the placement of foreign representation may also be necessary with external stakeholders, such as the Riksdag (Swedish Parliament), relevant agencies, the business sector and other key stakeholders. In general terms, the Inquiry considers that Swedish diplomatic presence should be prioritised: in leading geopolitical centres of power, both political and eco- nomic; in emerging geopolitical centres of power, both political and economic; in important countries; in places where the headquarters of multilateral organisations which are key to Swedish policy are located, and where the designing and monitoring of new multilateral structures requires our presence; and in countries or regions of particular interest for (more detailed information provided in annex 4). There has been an unfortunate shift in the balance of staff and resources from the missions abroad to the administration in . This should be rectified, and the Inquiry opened up opportunities for this in its interim report. In it, proposals were presented for how smaller and more cost-effective representation solutions could be used. foreign representation must function efficiently and flexibly, and be adapted to changing international circumstances. Plans for the location of foreign representation must, therefore, include both where is to be present and in which format. It was proposed in the interim report that there should be greater use of different, more customised forms of representation – honorary consulates, career consulates (consulates-general), embassies, mini- embassies, section offices, special envoys, regional solutions and local cooperation projects, and co-location with other countries. This presupposes an ability to simplify and limit the activities and support functions performed in the organisation abroad. Certain tasks should be centralised, regionalised or outsourced to a greater extent. The interim report also established that a more flexible presence abroad could be achieved by abolishing the status of the missions abroad as government agencies, by guaranteeing access to modern communications solutions, and by broadening opportunities for locally employed staff to participate in various activities. official public face in the world, in the form of embassies, consulates and delegations, functions as a platform for many ministry and agency staff. To create an efficient organisation, the Inquiry considers it necessary to strive to achieve closer cooperation and use of synergies between these state-financed activities. Compartmentalised thinking in various activities needs to be combated. Ambassadors must be given greater authority to lead and delegate work based on a clear direction for activities. The Inquiry considers that local cooperation can create effi- ciency gains and PR effects. Swedish agencies abroad should there- fore normally share the same premises, a kind of , unless there are special grounds not to. The Inquiry proposes that the organisational management of the Permanent Representation of to the EU be clearly coordinated by the Prime Ministers Office, with responsibility held by the Secretariat for European Affairs. However, for reasons of efficiency, the Permanent Representation should, in organisa- tional terms, remain under the MFA. Proposals, chapter 2–7 Chapter 2 The international work of the Government and the role of the Foreign policy aims to promote and defend a countrys security, prosperity and societal interests internationally. Swedish foreign policy should be clearly rooted in Swedish interests. Domestic and foreign policy rest on the same basic values. The boundaries between them are increasingly blurred. Domestic policy becomes internationalised and foreign and security policy is increasingly linked to national conditions. Ministries and other public administration bodies have to relate to this in their operations. Globalisation, Swedish membership of the EU and the geo- political and security policy developments of the last 20 years require Government Offices with international competence and outlook. In the Government Offices, each ministry is respons- ible for the international aspects of its areas of responsibility. shall have the overall perspective for the whole of Swedish foreign policy. also has two main operational tasks (cf. table in section 2.3.2): strategically and effectively promoting and defending interests internationally, and providing statutory duties and other services to a high standard and in accordance with regulations. The foreign representation is a tool for all international political interests of the Government. There is a need for increased inter-ministerial consultation and for strengthened drafting procedures on international affairs within the Government Offices. Multilateral work will become more significant in finding solutions to global challenges. Strategic bilateral work forms the basis of multilateral capabilities and success. Swedish diplomatic presence should be prioritised –in leading geopolitical centres of power, both political and economic; –in emerging geopolitical centres of power, both political and economic; –in important countries; –in places where the headquarters of multilateral organisations which are key to Swedish policy are located, and where the designing and monitoring of new multilateral structures requires Swedish presence; and –in countries or regions of particular interest for (more detailed information is provided in annex 4). Chapter 3 A modern foreign policy Section 3.1 Swedish foreign and security policy The MFA has overall responsibility for foreign and security policy in the Government Offices. The implications of this responsibility should be clarified. fifteen-year membership of Union should give rise to a review of interests, priorities and working methods in the EU, with the aim of increasing of having an impact. The creation of a , the EEAS, offers new opportunities for the Member States to pursue a joint foreign policy. must take an part in the creation of an efficient and balanced EEAS that, in the long term, can make it possible to effectivise Swedish foreign policy activities. Possible efficiency gains from the EEAS should be assessed continuously. The MFA should consider how it can, internally and with the Government Offices, work more coherently with economic diplomacy. This must be considered a priority area in Swedish foreign policy. New multilateral groupings and working methods are emerg- ing alongside the established international structures to deal with global tasks. There should be an analysis of what this means for the Governments international work. A Nordic study on multilateral forms of cooperation should be initiated. Section 3.2 Public diplomacy could increase the policy-impact Public diplomacy should be seen as a natural complement or alternative to state-to-state diplomacy. strategic public diplomacy efforts should be strengthened and integrated into all policy areas. An action plan for public diplomacy work should be drawn up by the MFA. It is proposed that nation branding and public diplomacy be managed and organised jointly within the ministries. The MFA should test the advantages of implementing a reorganisation to this end. Alternatively, cooperation between relevant departments should be formalised. For communication activities, including public diplomacy, to have an impact, the MFA must act to ensure access to a modern environment and communications equipment, not least for the foreign representation. The MFA should work for openness and dialogue with Swedish civil society concerning its tasks. The aim is to strengthen support for international ambitions in a globalized world, and to contribute to an increasing knowledge of the world in . Chapter 4 Foreign policy in the Government Offices Section 4.1 Broad formulation of Government foreign policy An inter-ministerial group of state secretaries for international initiatives and policy development should be established under the leadership of the State Secretary for Foreign Affairs. The state secretary group should be formalised through an amendment to the Ordinance concerning the Duties of the Government Offices (1996:1515). The group should be open to participation from all the mini- stries and the Prime Minister's Office. A group consisting of officials from the ministries most closely involved should be set up to prepare and coordinate the work of the state secretary group. The group would not be given decision-making powers. Deci- sions to be taken as a result of the state secretary groups work would be prepared according to current procedures. The state secretary group would have the annual task of pre- paring decisions on the priorities of the foreign representation. Section 4.2 Government Offices management of the foreign representation -To ensure broad consultation on the direction of the foreign representation, it is proposed that a planning process encom- passing all parts of the Government Offices be established. -Consultation would be initiated in the proposed state secretary group, led by the State Secretary for Foreign Affairs. -For the direction of activities, consultations concern the foreign representations ministerial tasks (i.e. participation in the pre- paration of Government business and otherwise assisting the Government and ministers in their activities). -It is proposed that a strategic discussion of the placement of foreign representation be held every three/four years, or as needed. -In terms of timing, consultations will be adapted to the Govern- ment Offices activity planning and planning of EU activities. -It is also proposed that consultations include an overall discus- sion of resources for the activities of the foreign representation. Section 4.3 Special attachés The need for efficiency and flexibility in the organisation abroad indicates that special attachés, who are selected by a particular ministry and serving abroad mainly for that ministry, should only be appointed when there is a particular need to do so. This should be discussed in the state secretary-led process proposed in section 4.2. The head of a small mission must be able to use staff flexibly. A larger proportion of special attachés can obstruct coordination and a holistic approach to activities. All officials posted from the Government Offices should be well integrated into the direction of activities laid down for the mission. The special nature of EU work requires a specific system for the Permanent Representation of to the EU, cf. section 4.4. below. The Special Attaché Ordinance should eventually be repealed. Section 4.4 Management of the Permanent Representation of to Union For reasons of efficiency, the Permanent Representation of to the EU should remain under the MFA. Policy and priorities of the operations should be clearly coordinated by the Prime Minister's Office, with responsibility held by the Secretariat for European Affairs. The leadership of the Permanent Representation should, for reasons of efficiency, have increased power to reassign tasks among the staff as needed due to peaks and troughs in work- load. Officials should work more extensively in clusters and be able to cover each others tasks. For efficiency, the timing of posts being filled should be coordinated. As a first step, a system could be formalised whereby the head of the Permanent Representation is able to reassign, for example, 20 per cent of officials working hours to tasks in related areas for a limited time. Section 4.5 Better communication within the Government Offices and with the foreign representation Simple routines should be introduced to create better coopera- tion and increase the exchange of knowledge between the ministries officials in international work (see below). The dissemination within the Government Offices of informa- tion and reports from foreign representation must be improved. The MFA should create an IT support platform in order to systematically increase accessibility. A greater proportion of reports should be made available out- side the missions, including via embassies websites. It is proposed that the MFA undertake a general review of reporting guide-lines for foreign representation, with the aim of –ensuring that the scope, orientation, format and timing of reports are more adjusted to requirements –establishing and communicating updated guidelines for report- ing. The orientation and scope of reporting should be laid down in the planning process proposed in section 4.2. for the activities of the foreign representation. Knowledge of and routines to guarantee the foreign repre- sentations need for information and background material from different parts of the Government Offices must be improved and honed. The MFA is responsible for initiating work to this effect. Chapter 5 Management of certain foreign policy activities Section 5.1 Strengthened trade and promotion activities In the area of public trade and promotion activities limited resources must be used in an efficient and closer cooperation between actors be strengthened in order to maximise the outcome of operations. Opportunities for collaboration and administrative synergies should be used in locations abroad where several public pro- motion actors operate. for Growth Policy Analysiss assignment to strengthen Swedish competitiveness internationally and its presence abroad clearly dovetails with the trade and investment promotion activities. for Growth Policy Analysis offices abroad must be seen as a part of the Governments overall trade development and promotion activities. In order to strengthen Government Offices coordination and management of the Governments promotion activities, it is proposed that a responsible Group of Principals including representatives of the relevant ministries be established under the leadership of the State Secretary for Trade and Promotion. should work towards harmonised appropriation directions for the underlying agencies and it should be given responsibility for coordinating the distribution of resources. The role and mandate of in coordinating work on the image of abroad needs to be adapted to the proposed Group of Principals. Activities abroad and funding of initiatives promoting are prerequisites for involvement with motion of . It is proposed that the MFA initiate a review of the acts, ordinances and instructions that govern the activities. A procedural agreement on forms of col- laboration and division of labour should be concluded between the MFA and the . The general rule should be that the establish its offices abroad as private legal subjects. In countries where activities in this form are not possible or appropriate, the should be able to request that the Government establish a trade office under new regulations. Synergies between investment promotion and export promotion indicate a need for strengthened and organisational cooperation between Invest and the . The link between development assistance and trade, and the divided responsibility for import issues indicate that a coherent import promotion function should be procured. The MFA should continue to work for stronger synergies between trade promotion activities and development coopera- tion to their shared and mutual benefit.