Written evidence from Rt Hon Sir Alan Duncan MP, Foreign and Commonwealth Office (RUS0047)

Thank you for the opportunity to give evidence to the Foreign Affairs Committee’s inquiry into the UK’s relations with Russia on 20 December. This letter responds to the Committee’s request for further information on a number of issues raised during the evidence session.

Criminal Finances Bill

The Criminal Finances Bill is a piece of Home Office legislation led by Security Minister Ben Wallace MP.

We understand the proposed amendment tabled by a cross party group of MPs on 28 November aims to introduce a power to impose financial sanctions including asset freezes on those involved in “gross human rights abuses”; and to enable those assets to be recovered where they are the proceeds of crime. 

The Government is considering this amendment at present. We are fully aware of the strength of feeling on this issue, and plan to discuss further with the cross-party group of MPs prior to Report Stage.

FCO Russia expertise and resources

As I said during the evidence session, Russia will be a key foreign policy priority for the foreseeable future. This underlines the importance of continued development of Russia-related expertise within Government. Over recent years the Government has ensured that Russia expertise is in place and being applied across its work, including on defence, energy, and national security issues.

The FCO’s Eastern Research Group (which forms part of the FCO’s Research Cadre) is a formidable body of long-term Russia analytical expertise in Whitehall, with wide-ranging reach into UK and international academic and analytical communities. The Eastern Research Group has a comparatively high concentration of more senior analysts and plays a crucial role in informing policy; in providing deep analytical capacity and continuity of institutional memory.

Following the Ukraine crisis, the FCO’s Eastern Europe and Central Asia Directorate (EECAD) was reinforced through the appointment of an SMS1 Additional Director and a range of additional roles in the delegated grades to reflect the increased priority given to Russia policy and the need for increased resources in this policy area. At the top levels of the FCO we are seeking to ensure that the regional expertise and experience we possess is used effectively, for example, half of the Heads of Mission currently in the Eastern Europe and Central Asia network are serving a second posting as a Head of Mission within this region.

In 2015 the FCO launched an Eastern Europe and Central Asia cadre of officials, already counting 400 members across Government. This “EECADre” is designed to pool experience and ensure that we continue to strengthen our capacity and skills over the long term and that officials working on this region have the support and skills to lead first class foreign policy towards Russia and the region. It is also intended to strengthen the message that Russian expertise can serve as a rewarding career anchor within the FCO.

The EECADre, along with the FCO’s Diplomatic Academy, delivers an active programme of internal courses on Russia and the Former Soviet Union, lectures by leading analysts and commentators, a forum for external experts to advise on developing policy, and a yearly ‘Future Leaders’ conference that nurtures our next generation of experts on the Eastern Europe and Central Asia region.

In recent years we have increased the resources in London and in the network that are focussed on Russia. I am confident that we have the expertise and staff numbers to meet our current requirements.

The FCO has significantly increased the number of Russian-language speaker positions in our Russia network of posts and elsewhere across the former Soviet Union. During the evidence session I said that we had increased these positions by 30%. This figure represents the increase between 2010 and the end of 2013. By the end of 2016 we had in fact increased these positions by 58% compared to 2010. We have considerable Russian language expertise across the FCO: 163 UK Based employees have some level of Russian language skills, ranging from basic Russian to extensive (equivalent to advanced degree level). We have also increased the minimum duration for Russian-language training from 11 to 14 months to improve language competence.

Further information

The Committee also asked for some further information on how UK policy on Russia is formulated; the number of Russian student exchanges to the UK; HMG funding of Russian NGOs; and details of Ministerial visits to and from Russia.

HMG Russia policy formulation

The UK’s strategic policy approach is set by the National Security Council, chaired by the Prime Minister. The Foreign Secretary has overall responsible for the work of the Foreign and Commonwealth Office, and I am the Minister responsible for the UK’s relationship with Russia. Ministers receive policy advice from officials which is informed by information and expertise from a range of sources, including the British Embassy in Moscow and the Eastern Research Group. Officials are in constant touch with our overseas network and other relevant government departments to lead first class foreign policy towards Russia. There are regular cross-Whitehall meetings to review the full range of government policies on Russia and to ensure strategic consistency. The National Security Council periodically review the government’s approach on Russia.

Student exchanges

We have significantly increased funding for the Chevening scholarship programme for students across Russia to take up post-graduate courses in any subject at universities in the UK.  The number of scholarships has been increased by 50%, from 8 in 2015-16 to 12 in 2016-17. Building on its success, we continue to foster links with the thriving Chevening alumni community, organising events at our Posts in Russia and engaging with alumni outside of the major cities.

In addition, this spring we are restarting the John Smith Memorial Trust (JSMT) Fellowship Programme targeting future leaders aged 25-40 from across the EECAD region working in government, politics, civil society, media, business and academia. Russia is a key part of the programme which aims to build capacity amongst future decision-makers and influencers in good governance, social justice and the rule of law. The Programme will extend contacts between the UK and the region, JSMT have already begun to reinvigorate the 400 strong alumni network. 

The FCO does not hold detailed information on the overall number of UK-Russia student exchanges. Since 1991 exchanges have taken place under institution-to-institution agreements and on individual initiatives, rather than a government-to-government basis. The British Council in Russia actively promotes the UK as a study destination and there are approximately 3,600 Russian students at UK universities which we estimate contributes around £90 million to the UK economy.

Funding of civil society organisations

The UK is one of the major actors and donors on human rights and civil society in Russia. In our dealings with the Russian Government we consistently draw attention to our human rights concerns. We regularly monitor proceedings in trials with a human rights element. We also provide support to a range of civil society and human rights organisations in Russia, including in the fields of strengthening media independence, promoting the rule of law and protecting the rights of women, LGBT and disabled people. Furthermore we provide assistance to organisations engaged in improving the human rights and civil society environment, including through human rights education and building the capacity of civil society organisations. In the 2016-17 financial year we are providing around £1.4 million to human rights and civil society projects in Russia. This was an increase in the provision in 2015-16 and we envisage the financing for such projects to increase in 2017-18.

I attach a list of the Ministerial visits to and from Russia since Russia’s illegal annexation of Crimea.

January 2017

UK-Russia Ministerial visits since February 2014

HMG Ministerial visits to Russia

Russian Federation Ministerial visits to UK