Abstract
The Scottish Nationalist Party’s majority in the 2011 Scottish parliamentary elections opened up a wide and interesting debate on the variety of options for Scotland’s constitutional future (ranging from the status quo through a variety of intermediate options to full independence), and with it, also the innovate possibility of a multi-option referendum, reflecting the preferences of the people of Scotland. However, while the UK Government agreed that the future of Scotland’s place within the Union was for the people of Scotland to vote on, it strongly contested the Scottish Parliament’s competence to legislate for the referendum, thus ensuring a role for itself and the UK Parliament in its design. After a period of negotiations, the UK and Scottish Governments signed the Edinburgh Agreement on the 15th October 2012, enabling the Scottish Parliament to legislate for a single question referendum, and expressing their commitment to work together in the interests of all involved. This article begins looking at the background, legal framework and negotiations leading up to the Edinburgh Agreement. It then argues that, while the Agreement is notably significant and has allowed for the smooth and fast development of the process so far, by excluding the possibility of including a third option of ‘more devolution’ on the ballot paper, it is having a series of negative consequences for the current debate, namely that it is more limited, confusing and uncertain, and largely unbalanced in favour of the ‘no’ side.
This is a preview of subscription content, log in via an institution to check access.
Similar content being viewed by others
Notes
In the 2011 elections to the Scottish Parliament, the SNP won 69 seats, Labour 37, the Conservatives 15, and the Liberal Democrats 5. The remaining 3 seats went to the Green Party (2) and an independent.
In the 2007 elections to the Scottish Parliament, the SNP won 47 seats, Labour 46, the Conservatives 17, and the Liberal Democrats 16.
ISBN 978-0-7559-5493-3; available at http://www.scotland.gov.uk/Publications/2007/08/13103747/0. Accessed 1 September 2013.
ISBN 978- 0-7559-8114-4; Available at http://www.scotland.gov.uk/Publications/2009/11/26155932/0. Accessed 1 September 2013.
Draft Referendum (Scotland) Bill [Consultation Draft] available at http://www.scotland.gov.uk/Resource/Doc/303348/0095139.pdf. Accessed 1 September 2013.
For further details see http://www.commissiononscottishdevolution.org.uk/about/index.php. Accessed 1 September 2013.
‘The Future of Scottish Devolution within the Union: A First Report’ (2008) and ‘Serving Scotland Better: Scotland and the United Kingdom in the 21st Century’ (2009). Both are available at http://www.commissiononscottishdevolution.org.uk/about/index.php. Accessed 1 September 2013.
It received Royal Assent on the 1st May. The proceedings and documents leading to its enactment can be accessed at http://services.parliament.uk/bills/2010-12/scotland.html. Accessed 1 September 2013.
This data corresponds to the years 2010, 2011 and 2012. The remaining percentage for the 3 years reflects those whose preferred option would be no devolution.
More specifically, a majority is in favour of the Scottish Parliament making the key decisions about taxation, benefits, the health Service and schools. On the other hand, only around a third think that Holyrood should make decisions about defence and foreign affairs.
For example, there is also a ‘devo-more’ project, being carried out by the Institute of Public Policy Research (IPPR), which aims to develop a model of enhanced devolution for Scotland and the rest of the UK which provides a clear alternative to independence. See: http://www.ippr.org/research-project/44/10218/devo-more-extending-devolution-and-strengthening-the-union. Accessed 1 September 2013.
‘A New Union. Third report of the Devo Plus Group’ (2012), available at http://www.devoplus.com/storage/documents/A%20New%20Union.pdf
It states that ‘Its objective is to set out policies in Scotland that deliver increased economic prosperity and more effective public services based on the traditional Scottish principles of limited government, diversity and personal responsibility.’ See http://www.reformscotland.com/. Accessed 1 September 2013.
There have, however, been some exceptions. See Sir David Edward challenging the opinion of the European Commission president over the status of an independent Scotland in the EU. http://www.bbc.co.uk/news/uk-scotland-scotland-politics-20757450. Accessed 1 September 2011.
Scotland Act 1998, section 29 together with Schedule 5.
Scotland Act 1998, section 30
Scotland Act 1998, sections 31–36 and Schedule 6.
The proceedings and relevant documents are available at http://www.parlamaid-alba.org/parliamentarybusiness/CurrentCommittees/29883.aspx. Accessed 1 September 2013.
Scotland Act 1998, Schedule 5 (1), part 1.
Scotland Act, Schedule 4 (4).
This was then included formally in the ‘Preface’ of their consultation (see below).
‘Scotland's constitutional future’, Cm 8203—Official Documents, available at http://www.official-documents.gov.uk/document/cm82/8203/8203.pdf. Accessed 1 September 2013.
‘Your Scotland—Your Referendum—A Consultation Document’, ISBN: 978-1-78045-633-1, available at http://www.scotland.gov.uk/Publications/2012/01/1006. Accessed 1 September 2013.
Orders made under section 30 of the Scotland Act 1998 allow for modifications to be made to Schedule 5 to the Scotland Act, which lists those matters that are reserved to the UK Parliament, and allows the Scottish Parliament’s legislative competence to be altered by removing or updating existing reservations, or by adding new ones.
‘Agreement between the UK Government and the Scottish Government on a referendum on independence for Scotland’, available at http://www.scotland.gov.uk/About/Government/concordats/Referendum-on-independence. Accessed 1 September 2013.
The Electoral Commission (2013), ‘Referendum on Independence for Scotland: Advice of the Electoral Commission on the Proposed Referendum Question’; it also published (2013), ‘Electoral Commission Advice on Spending Limits for the Referendum on Independence for Scotland’. Both are available at http://www.electoralcommission.org.uk/?a=149742. Accessed 1st September 2013.
Section 3 of the Bill (now Act) replicates the blanket ban on voting by convicted prisoners in Parliamentary and local government elections maintained in UK law by the Representation of the People Act 1983, s3.
The European Court of Human Rights has declared that these blanket bans are a violation of the right to vote protected by Article 3 of Protocol 1, ECHR (A3P1) because of their disproportionate nature in Hirst v UK (No. 2), Case NO. 74025/01 (2005); Greens & M.T. v UK Case Nos. 60041/08 & 60054/08 (2010).
The proceedings and documents are available at http://www.scottish.parliament.uk/parliamentarybusiness/bills/60464.aspx. Accessed 1 September 2013.
(2013), ‘Referendum on Independence for Scotland: Advice of the Electoral Commission on the Proposed Referendum Question’, p. 36.
ISBN: 9781782563815, available at http://www.scotland.gov.uk/Publications/2013/02/8079. Accessed 1 September 2013.
‘Scotland analysis: Devolution and the implications of Scottish independence’, Cm 8554, available at
https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/79407/Report_excluding_annexes_Independan…__2_.pdf. Accessed 1 September 2013.
On the fiscal commission, see Fiscal Commission Working Group (2013), ‘First Report—Macroeconomic Framework’ and ‘Currency Choices for an Independent Scotland: Response to the Fiscal Commission Working Group’ (2013); on welfare, Scottish Government Expert Working Group on Welfare (2013), ‘May 2013 Report’ and Scottish Government (2013), ‘Initial Response to the Expert Working Group on Welfare Report’ (2013). All are available at http://www.scottishconstitutionalfutures.org/Resources/UsefulPublications/OfficialPublications/tabid/1778/Default.aspx. Accessed 1 September 2013.
ISBN: 9781782568315, available at http://www.scotland.gov.uk/Publications/2013/08/2253. Accessed 1 September 2013.
ISBN: 9781782567769, available at http://www.scotland.gov.uk/Publications/2013/07/5746. Accessed 1 September 2013.
ISBN: 9781782564188, available at http://www.scotland.gov.uk/Publications/2013/02/1911. Accessed 1 September 2013.
Available at http://www.scotland.gov.uk/Resource/0041/00418420.pdf. Accessed 1 September 2013.
All these documents are available at https://www.gov.uk/government/organisations/scotland-office/series/scotland-analysis. Accessed 1 September 2013.
In this sense, see the conclusion in ScotCen (2013), ‘The option not on the table’, available at http://www.esrc.ac.uk/_images/The%20option%20not%20on%20the%20table_tcm8-26551.pdf. Accessed 1 September 2013.
See http://www.devoplus.com/home/2013/9/1/new-opinion-poll-voters-demand-pre-referendum-agreement-on-a.html. Accessed 1 September 2013.
A copy of Ruth Davidson’s speech, ‘Strengthening Devolution, Taking Scotland Forward’, is available at http://www.scottishconservatives.com/2013/03/strengthening-devolution-taking-scotland-forward/; See also Trench, A. (2013).
‘Federalism: the Best Future for Scotland: Report of the Home Rule and Community Rule Commission’ (2012), available at http://scotlibdems.org.uk/homerule http://scotlibdems.org.uk/files/Federalism%20%20the%20best%20future%20for%20Scotland%20web.pdf
‘Powers for a Purpose—Strengthening Devolution: Interim Report’ (2013), available at
http://www.scottishlabour.org.uk/campaigns/entry/devolution-commission
This is established in Section 1 (2) of the Fixed-term Parliaments Act 2011.
For an account and analysis of the different polls and their results, see ‘Whatscotlandthinks.org’, at http://whatscotlandthinks.org/. Accessed 1 September 2013.
See, for example, McIintosh, L. (2013), ‘A united campaign—countdown to referendum inside Project Fear’, The Times—Scotland, September 16th, available at http://www.thetimes.co.uk/tto/news/uk/scotland/article3870122.ece. Accessed 1 September 2013.
For further discussion, see also House of Commons Scottish Affairs Committee (2012) ‘The Referendum on Separation for Scotland: a Multi-Option Question?’, 3rd Report of Session 2012–13, HC 543, available at http://www.publications.parliament.uk/pa/cm201213/cmselect/cmscotaf/543/543.pdf. Accessed 1 September 2013.
References
Anderson, G. et al. (2012). 'The Independence Referendum, Legality and the Contested Constitution: Widening the Debate'. UK Constitutional Law Blog. Available at: http://ukconstitutionallaw.org/2012/01/31/gavin-anderson-et-al-the-independence-referendum-legality-and-the-contested-constitution-widening-the-debate/. Accessed 1 September 2013.
Bell, C. (2012). ‘The Legal Status of the 'Edinburgh Agreement'’. Scottish Constitutional Futures Forum Blog. Available at: http://www.scottishconstitutionalfutures.org/OpinionandAnalysis/ViewBlogPost/tabid/1767/articleType/ArticleView/articleId/431/Christine-Bell-The-Legal-Status-of-the-Edinburgh-Agreement.aspx. Accessed 1 September 2013.
Bradely, A., & Ewing, K. D. (2011). Constitutional & administrative law (15th ed.). Harlow: Pearson.
Boyle, A. and Crawford, J. (2013). ‘Opinion: Referendum on the independence of Scotland—international law aspects’, Annex A, in HM Government. Scotland analysis: Devolution and the implications of Scottish independence, Cm 8554.
Cairney, P. and Keating, M. (2004). ‘Sewel motions in the Scottish parliament’. Scottish Affairs, no.47, spring, pp. 115–34
Casanas Adam, E. (2013), ‘Another independence referendum in 2014? Recent developments in Catalonia’. Scottish Constitutional Futures Forum Blog. Available at: http://www.scottishconstitutionalfutures.org/OpinionandAnalysis/ViewBlogPost/tabid/1767/articleType/ArticleView/articleId/1031/Elisenda-Casenas-Adams-Another-Independence-Referendum-in-2014-Recent-Developments-in-Catalonia.aspx. Accessed 1 September 2013.
Devine, T. (2013). ‘Today is the most important date since 1707 Act of Union’. The Scotsman. Available at: http://www.scotsman.com/news/tom-devine-today-is-the-most-important-date-since-1707-act-of-union-1-2576105. Accessed 1 September 2013.
Green, H. (2013). ‘Prisoners and other people: the right to vote in the Scottish Independence Referendum (Franchise) Bill’. Scottish Constitutional Futures Forum Blog. Available at: http://www.scottishconstitutionalfutures.org/OpinionandAnalysis/ViewBlogPost/tabid/1767/articleType/ArticleView/articleId/1951/Heather-Green-Prisoners-and-Other-People-the-Right-to-Vote-in-the-Scottish-Independence-Referendum-Franchise-Bill.aspx. Accessed 1 September 2013.
Henderson, A., et al. (2012). Response to the Scotland Office Consultation: A referendum on Scotland’s constitutional future: a consultation on facilitating a legal, fair and decisive referendum on whether Scotland should leave the United Kingdom, Institute of Governance, University of Edinburgh. Available at http://www.instute-of-governance.org/independence/consultaon_responses. Accessed 19 Nov 2013.
Himsworth, C., & O’Neill, C. (2009). Scotland’s constitution: law and practice. Edinburgh: Bloomsbury Professional.
Kane, P. (2011). ‘Independence lite?’. Bella Caledonia blog. Available at: http://bellacaledonia.org.uk/2011/05/14/independence-lite/. Accessed 1 September 2013.
Keating, M. (2012). Rethinking sovereignty. Independence-lite, devolution-max and national accommodation. REAF, 16.
Keating, M. (2001). Plurinational democracy. Stateless nations in a post-sovereignty era. Oxford: Oxford University Press.
Kellner, P. (2012). Written evidence submitted to the House of Commons Scottish Affairs Committee on ‘The Referendum on Separation for Scotland’, Session 2010–12, available at:http://www.publications.parliament.uk/pa/cm201012/cmselect/cmscotaf/writev/referendum/rs11.htm. Accessed 1 September 2013.
Lang, A. (2013). ‘Constitutional mythologies’, Scottish Constitutional Futures Forum Blog. Available at: http://www.scottishconstitutionalfutures.org/OpinionandAnalysis/ViewBlogPost/tabid/1767/articleType/ArticleView/articleId/1305/Anthony-Lang-Constitutional-Mythologies.aspx. Accessed 1 September 2013.
McHarg, A. (2012a). ‘The Referendum: Memorandum of Agreement and Draft Section 30 Order’, Scottish Constitutional Futures Forum Blog. Available at: http://www.scottishconstitutionalfutures.org/OpinionandAnalysis/ViewBlogPost/tabid/1767/articleType/ArticleView/articleId/340/Aileen-McHarg-The-Referendum-Memorandum-of-Agreement-and-Draft-Section-30-Order.aspx. Accessed 1 September 2013.
McHarg, A. (2012b). ‘The legal effects of the Edinburgh Agreement—again’, Scottish Constitutional Futures Forum Blog. Available at: http://www.scottishconstitutionalfutures.org/OpinionandAnalysis/ViewBlogPost/tabid/1767/articleType/ArticleView/articleId/468/Aileen-McHarg-The-Legal-Effects-of-the-Edinburgh-Agreement--Again.aspx. Accessed 1 September 2013.
McLean, I., Gallagher, J., & Lodge, G. (2013). Scotland’s choices. The referendum and what happens afterwards. Edinburgh: Edinburgh University Press.
McKerrell, N. (2013). ‘A new Scottish Constitution: who writes it and what's in it? A slight beginning’. Scottish Constitutional Futures Forum Blog. Available at: http://www.scottishconstitutionalfutures.org/OpinionandAnalysis/ViewBlogPost/tabid/1767/articleType/ArticleView/articleId/1092/Nick-McKerrell-A-New-Scottish-Constitution-Who-Writes-It-and-Whats-in-It-A-Slight-Beginning.aspx. Accessed 1 September 2013.
Mullen, T. and Tierney, S. (2012). ‘Scotland’s constitutional future: the legal issues’, available at: http://www.gla.ac.uk/media/media_237284_en.pdf. Accessed 1 September 2013.
Reid, P. (2013). ‘Independence, the referendum, the franchise and prisoners: stormy waters ahead?. UK Constitutional Law Group Blog. Available at: http://ukconstitutionallaw.org/2013/03/13/paul-reid-independence-the-referendum-the-franchise-and-prisoners-stormy-waters-ahead/. Accessed 1 September 2013.
Ridoch, L. (2013). ‘Uncertainty is a starting point too’, The Scotsman. Available at: http://www.scotsman.com/news/lesley-riddoch-uncertainty-is-a-starting-point-too-1-2968882. Accessed 1 September 2013.
Salmond, A. (2012). ‘An independent Scotland will be a beacon of fairness’, The Guardian. Available at: http://www.theguardian.com/commentisfree/2012/jan/23/scottish-independence-social-union. Accessed 1 September 2013.
ScotCen (2013).‘The option not on the table. Attitudes to more devolution’, available at http://www.esrc.ac.uk/_images/The%20option%20not%20on%20the%20table_tcm8-26551.pdf. Accessed 1 September 2013.
Scottish Government. (2009). ‘Your Scotland, your voice: a national conversation’, ISBN 978- 0-7559-8114-4; Available at http://www.scotland.gov.uk/Publications/2009/11/26155932/0. Accessed 1 September 2013.
Tierney, S. (2013a). ‘Flexible accommodation: another case of British exceptionalism?’, Edinburgh School of Law Research Paper No. 2013/15
Taylor, B. (2012). ‘Scotland’s referendum: who, what, when, where, why?’. Edinburgh School of Law Research Paper No. 2012/14
Tierney, S. (2013b). ‘Using electoral law to construct a deliberative referendum: moving beyond the democratic paradox’, Edinburgh School of Law Research Paper No. 2013/14
Tierney, S. (2013c). ‘Possible vires issue in relation to section 3 of the Scottish Independence Referendum (Franchise) Bill’, available at http://www.scottish.parliament.uk/S4_ReferendumScotlandBillCommittee/20130321_Letter_to_DFM_on_prisoners_voting_rights.pdf. Accessed 1 September 2013.
Tierney, S. (2013d). ‘Legal issues surrounding the referendum on independence for Scotland’. European Constitutional Law Review (forthcoming)
Tierney, S. (2013e). ‘After the referendum: the Scottish government's proposal for a written constitution’, UK Constitutional Law Group Blog. Available at: http://ukconstitutionallaw.org/2013/03/12/stephen-tierney-after-the-referendum-the-scottish-governments-proposal-for-a-written-constitution/. Accessed 1 September 2013.
Tierney, S. (2013f). ‘The Multi-option Referendum: international guidelines, international practice, and practical issues’, Edinburgh School of Law Research Paper No. 2013/32
Tierney, S. (2004). Constitutional law and national pluralism. Oxford: Oxford University Press.
Tierney, S. (2012). Constitutional referendums. The theory and practice of Republican deliberation. Oxford: Oxford University Press.
Tomkins, A. (2012), ‘The Scottish parliament and the independence referendum’, UK Constitutional Law Group Blog. Available at: http://ukconstitutionallaw.org/2012/01/12/adam-tomkins-the-scottish-parliament-and-the-independence-referendum/. Accessed 1 September 2013.
UK Government (2012). ‘Scotland’s constitutional future’, Cm 8203 ‐ Official Documents, available at http://www.official-documents.gov.uk/document/cm82/8203/8203.pdf. Accessed 1 Sept 2013.
Walker, N. (2013a). Scotland's constitutional future: interdependent independence or independent interdependence?, Edinburgh School of Law Research Paper No. 2013/05
Walker, N. (2013b). ‘The receding tape’, Scottish Constitutional Futures Forum Blog. Available at: http://www.scottishconstitutionalfutures.org/OpinionandAnalysis/ViewBlogPost/tabid/1767/Default.aspx. Accessed 18 September.
Author information
Authors and Affiliations
Corresponding author
Additional information
Lecturer in Public Law and Human Rights, Edinburgh Law School. I am very grateful to Montserrat Guibernau, Chris Himsworth, Alberto Lopez Basaguren, Francois Rocher, Dejan Stepanovic and Stephen Tierney for comments on earlier drafts. I am of course responsible for any remaining errors.
Rights and permissions
About this article
Cite this article
Casanas Adam, E. Self-determination and the Use of Referendums: the Case of Scotland. Int J Polit Cult Soc 27, 47–66 (2014). https://doi.org/10.1007/s10767-013-9164-5
Published:
Issue Date:
DOI: https://doi.org/10.1007/s10767-013-9164-5