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Introduction

This overview report covers the period from 1 April 2023 to 4 July 2024, and is published in the context of the inter-institutional relations agreement between the Senedd and the Welsh Government of 2021<. It is the second report published pursuant to that agreement. The last report is available here.

This report is intended to provide an overview of intergovernmental work across the Welsh Government in the period until the 2024 UK General Election. The experience of intergovernmental working outlined in this report has developed significantly since that point.

This report is provided alongside regular Welsh Government updates to the Senedd in plenary and committee, and via statements and correspondence, which are available on the Senedd website.

Communiques relating to engagement undertaken as part of IGR Review structures are available here.

Summary

In the view of Welsh Ministers, the previous UK government’s approach to intergovernmental working undermined the devolution settlement and damaged the union of the United Kingdom. The clearest examples of this were the repeated breaches of the Sewel Convention. More broadly, poor engagement and ineffective use of the agreed intergovernmental relations mechanisms by the former UK government – as reflected in late notice of UK government policy proposals affecting the Welsh Government, limited information sharing, and opportunities missed for the governments to work together more closely – were regrettable common features of the relationship from the Welsh Government’s perspective. Constrained overall UK public spending and unnecessary restrictions on the Welsh Government’s budget also adversely impacted on devolved responsibilities during this period.

However, there were areas where the Welsh Government and the UK government worked together more positively – for example, in relation to freeports, the development of proposed legislation relating to tobacco and vapes, and trade policy – and constructive engagement at official level was seen on a broad range of areas.

The formation of a new UK government following the election has provided a major opportunity to reset intergovernmental relations and develop a close partnership, with 2 governments working together in the interests of people across Wales.

The Welsh Government continues to support the structures and mechanisms agreed as part of the Intergovernmental Relations Review (‘the IGR Review’) which was a positive step towards a reformed and strengthened UK, through which governments work together for mutual benefit. In relation to a continuing agenda of constitutional reform, the Welsh Government remains committed to the recommendations in the final report of the Independent Commission on the Constitutional Future of Wales, which was published during this reporting period in January 2024.

The Welsh Government also continues to benefit from strong relationships with the other devolved governments and with British-Irish Council member administrations outside the UK.

Intergovernmental relations

Constitution and devolution

During this reporting period, progress in implementing the formal machinery outlined in the IGR Review was variable. Normally, following each meeting, a short joint communiqué is published, and Welsh Ministers have worked to provide more information through Written Statements or detailed letters to Senedd committees.

Top tier: Prime Minister and Heads of Devolved Governments Council

Despite requests from the Welsh Government, the Prime Minister and Heads of Devolved Governments Council did not meet during this reporting period. This was disappointing and undermined the agreement set out in the IGR Review.

Middle tier: Inter-Ministerial Standing Committee (IMSC)

The IMSC is a valuable element of the IGR structures, providing a forum for consideration of cross-cutting issues. The IMSC met 3 times during this reporting period (17 May 2023; 19 October 2023; 12 March 2024). Discussions included areas such as the UK Legislation Programme, repeated breaches of the Sewel Convention, the cost-of-living crisis, International Relations and Common Frameworks. At the March 2024 meeting the Welsh Government led an item on the final report of the Independent Commission on the Constitutional Future of Wales.

Middle tier: Finance Inter-ministerial Standing Committee (F:ISC)

The F:ISC met 4 times during the reporting period, with 3 meetings in person (22 June 2023; 20 September 2023; 25 January 2024) and one virtual meeting (14 March 2024). Discussions focused on EU replacement funding, public spending pressures, energy security, economic and fiscal priorities, devolved governments’ budgets and measures to tackle poverty.

Portfolio level: Inter-Ministerial Groups (IMGs)

The IMGs are the main fora for discussing areas of mutual interest and concern at a portfolio level. During this period, 15 IMGs were in place, though some operated more effectively than others. The effectiveness of IMGs and the relationships built through them have been impacted by last-minute cancellations or shortened agendas. One IMG, the COP26 IMG, is no longer meeting as it is deemed no longer required.

Intergovernmental Relations Secretariat

The impartial Intergovernmental Relations Secretariat, established from the Review, is fully operational and accountable to the council. It serves all governments equally in accordance with the Review. However, the governments themselves remain accountable for intergovernmental relations as a whole.

UK Legislation Programme and the Sewel Convention

This reporting period covered significant activity across the former UK government’s third and fourth legislative programmes. During this period, 12 UK Bills received Royal Assent containing provisions regarding devolved matters with the Senedd’s consent. However, several Bills received Royal Assent without the consent of the Senedd, showing a lack of respect for the Sewel Convention. These included the Retained EU Law Act 2023, the Energy Act 2023 and others. The Senedd also refused consent for the Strikes (Minimum Service Levels) Act 2023 and the Illegal Migration Act 2023.

Common frameworks

Common Frameworks are operational intergovernmental agreements managing areas of policy previously governed by the EU. During this reporting period, of the 26 frameworks that apply to Wales, one had been fully scrutinised and published and 23 were operating at an official level but remained provisional; they currently await final ministerial sign-off across all 4 governments. The 2 remaining frameworks were at different stages of development.

British-Irish Council

Three British-Irish Council Summits were held during this reporting period:

Jersey Summit: 15-16 June 2023

Focused on housing and energy policy, discussing efforts to provide affordable housing and decarbonisation. The summit also reflected on the 25th anniversary of the Good Friday Agreement.

Ireland Summit: 23-24 November 2023

Focused on transforming children’s lives, tackling child poverty, and improving wellbeing.

Isle of Man Summit: 20-21 June 2024

Focused on unlocking economic and social opportunities of renewables. In contributing to the discussion, the Welsh Government highlighted ambitions for the publicly owned renewable energy developer, Trydan Gwyrdd Cymru, and the Morlais tidal stream array project.

Coronation of His Majesty King Charles III 

The Welsh Government worked closely with the UK government on the Coronation of His Majesty King Charles III, ensuring it was marked appropriately in Wales. This included funding for large screens in Cardiff and identifying Welsh contributors to attend the Coronation.

Ukraine 

The Welsh Government continues to work closely with the UK government and other devolved governments to ensure the Ukraine humanitarian response is delivered effectively in Wales. The Welsh Government’s Super Sponsor route has supported over 3,300 Ukrainian arrivals.

Wider migration issues

The Welsh Government has continued to work with UK government and devolved government counterparts on migration issues. The Safety, Security, and Migration Inter-Ministerial Group met twice. It was not possible to meet again prior to the general election as the scheduled meeting was postponed twice. Welsh Government officials met bi-monthly with devolved government counterparts to discuss and share information on devolved policies around planned migration. They also attended monthly stakeholder meetings with the UK government’s Future Borders and Immigration Team. In early 2024 Welsh Government officials worked closely with the Ministry of Defence as part of the Afghan Relocations and Assistance Policy Scheme.

Statistics and analysis 

The Concordat on Statistics has continued to operate well, with intergovernmental relations largely coordinated at official level. Significant engagement occurred with the Office for National Statistics on population and migration statistics, and labour market statistics. Improving data coherence across the UK has also been a focus, with health statistics an initial priority, leading to improved coherence of data on ambulance response times, emergency department waiting times and the healthcare workforce.

Digital policy

Regular engagement occurred on digital services, including implementing GOV.UK One Login across Welsh Government services. The Welsh Government hosted an informal 4 Nations Digital Group, providing a forum for collaboration on digital service activities.

Engagement on digital regulation was regular, with the Online Safety Bill receiving Senedd consent. Discussions continued on the Data Protection and Digital Information Bill, though there were concerns about some provisions.

Collaboration on broadband and mobile connectivity initiatives continued, with regular meetings discussing Project Gigabit and the Shared Rural Network. Welsh Government officials also participated in meetings with other devolved governments to discuss digital infrastructure issues.

Procurement

The Common Framework for Public Procurement facilitated information sharing on policy issues, with meetings held monthly and bi-annually. Despite being non-legislative, the commitment to share information has been maintained.

Constructive engagement occurred on the Procurement Act 2023, with Welsh Ministers securing standalone regulation-making powers. Collaboration continued on developing secondary legislation and a comprehensive learning and development programme.

Monthly policy meetings discussed procurement chapters within draft free trade agreements. Relations were adversely affected by the creation of concurrent powers which could be used by UK government ministers without the consent of Welsh Ministers in the Trade (Australia and New Zealand) Act 2023 and the Procurement Act 2023.

Elections

The Elections and Registration Inter-Ministerial Group met twice during this reporting period. Ministers agreed the need for collaborative working including helping public understanding and engagement, particularly where different rules apply to devolved and reserved elections, and extending the Online Absent Voting Application system. Regular meetings were held with other governments to share information and best practice.

International relations

UK-EU Relations Inter-Ministerial Group: The IMG met 3 times during this reporting period in advance of formal UK-EU meetings, assisting in the preparation of UK positions. The Welsh Government was represented at each meeting, discussing strategic and specific issues.

Ministerial Engagement on International Issues: International matters appeared on two IMSC agendas, discussing Ukraine, Israel/Gaza and the International Development White Paper. The Welsh Government continued to advocate for a dedicated IMG for International Relations.

Free trade agreements (FTAs) 

Ministerial engagement on FTAs occurred through the Trade Inter-Ministerial Group, which met four times in this reporting period, with positive engagement on negotiations and trade policy issues generally, whilst noting the point on concurrent powers referred to earlier. Official-level engagement was frequent and predominantly positive.

Finance

In addition to discussions at the F:ISC, bilateral Ministerial meetings with the Chief Secretary to the Treasury and other Treasury Ministers focused on budget pressures and flexibilities, investment in coal tip safety and rail, funding in relation to HS2, devolution of new tax powers and renewable energy-related issues.

Economy

Business and Industry 

The Business and Industry Inter-ministerial Group did not meet during this reporting period. The last meeting prior to the reporting period was on 17 January 2023. The hiatus was due to ministerial and departmental changes in the UK Government. Engagement with the Department for Business and Trade (DBT) regarding Tata was disappointing, as the agreement between the UK government and Tata was not shared with the Welsh Government. The Welsh Government's former Minister for Economy made a number of requests to meet with the Secretary of State for Business and Trade though no meeting took place. 

Freeports and investment zones 

Freeports and Investment Zones are UK government programmes were set up to support economic development through a mix of reserved and devolved tax reliefs and other investments. The Welsh Government agreed to work in partnership with the UK government to support Freeports and Investment Zones in Wales. The Freeports programme in Wales provided a starting point for a good model of joint working between the UK government and Welsh Government where reserved and devolved levers are combined, and importantly where the UK government respected the Welsh Government’s policy commitments relating to Fair Work and Net Zero. This approach facilitated genuinely joint decision-making at key points; though scope existed to remove duplication by UK government in areas which are devolved.

Shared Prosperity Fund

There was little meaningful engagement between the 2 governments on the Shared Prosperity Fund (SPF), the replacement to EU structural funds, during the reporting period. The Welsh Government maintains that regional economic development is a devolved competence, and associated funding and decision-making should in the future be returned to the Welsh Government to deliver with Welsh partners.

Economic regulation

The UK Internal Market Act 2020 was imposed without the consent of the devolved governments and legislatures. The concerns articulated by Welsh Government at the time of introduction of this legislation remained throughout the reporting period. Whilst official-level representations sought greater clarity, transparency, and predictability in the exclusion process, no progress was made with the UK government.

Energy and climate change 

Energy policy is mostly reserved but impacts several devolved areas. There was little recognition of this in the UK Government during the reporting period. The Energy Act 2023 was passed without the consent of the Senedd. However, positive progress was made with steps to improve intergovernmental working to implement the Act. A new ministerial group was established to implement regulatory requirements for Carbon Capture and Storage technology. The Welsh and UK governments continued to work together on floating offshore wind in the Celtic Seas during the reporting period.

The Net Zero, Energy, and Climate Change Inter-Ministerial Group met 5 times during the reporting period. The IMG supported effective engagement and collaboration in areas of shared interest and is the primary decision-making body for the UK Emissions Trading Scheme. The group enabled ministers to discuss and share learning across various areas and make decisions on important policies. However, there were concerns regarding a lack of information sharing by UK government on certain announcements.

There was positive engagement with the Department of Energy Security and Net Zero (DESNZ) over energy affordability, electric vehicles, and charging points. The Welsh Government was kept updated on the progress of the Economic Crime and Corporate Transparency (ECCT) Act and the Digital Markets and Competition and Consumer (DMCC) Act.

Skills and employability 

The Welsh Government has a positive relationship with Her Majesty’s Prison and Probation Service (HMPPS) on learning and skills provision in Welsh prisons. The Welsh Government funds the provision through a joint Memorandum of Understanding with HMPPS. Officials from both governments and other stakeholders worked collaboratively to co-develop a Welsh Government offender learning policy. In November 2023, the UK government used concurrent powers in the Professional Qualifications Act 2022 to make regulations without Welsh Ministers' consent, which the Welsh Government opposed.

Education

The UK Education Ministers Council (IMG) met once during the reporting period, focusing on digital approaches in education. A 4-nations Reinforced autoclaved aerated concrete (RAAC) Working Group was established to share details on RAAC surveys and management approaches. The then Minister for Education and Welsh Language chaired the British-Irish Council’s Indigenous, Minority, and Lesser-Used Languages Work Sector Ministerial meeting in Jersey, focusing on language use, linguistic infrastructure and culture.

Environment, agriculture, food

The Environment, Food and Rural Affairs Inter-Ministerial Group met 3 times during this reporting period, with discussions on the Internal Market Act and Deposit Return Scheme. Official-level working remained positive, though last-minute policy decisions by the UK government brought challenges. Joint positions were agreed on extended producer responsibility for packaging and bans on wet wipes containing plastic and single use vapes. Provisional Common Frameworks continued to be used to assist in cross-government working and managing divergence.

Border controls

The Welsh, Scottish and UK governments worked together to agree and publish the Border Target Operating Model in August 2023. Subsequently, there was little progress in resolving policy issues that would enable physical checks on imports from Ireland, during this reporting period, though joint working has since improved.

Health

Productive relationships were developed at the official level across the 4 nations, resulting in a Terms of Reference for the UK Health Ministers Forum Inter-Ministerial Group. Whilst 2 meetings of the IMG were scheduled during this reporting period, one was shortened due to other commitments by the then Secretary of State for Health and Social Care and one was cancelled upon the announcement of the general election. Due to this, it is the opinion of Welsh Government that this IMG did not meet in the spirit of the Review of Intergovernmental Relations during this reporting period.

The UK government undertook a managed decommissioning of its COVID-19 testing infrastructure, with constructive 4-nations engagement. The Welsh Government worked closely with the UK government on the Tobacco and Vapes Bill and regulations to implement a levy on the gambling industry.

A refreshed Biological Security Strategy (BSS) was published on 12 June 2023, aiming for the UK to be resilient to biological threats by 2030. Work progressed positively on a 4-nations basis during the reporting period. The National Bio-surveillance Network (NBN) is outcome 9 of the BSS, which aims to embed a One Health approach to surveillance. Welsh Government officials met with counterparts across the 4 nations to inform the development of this outcome, though coordination and communication were initially challenging.

Social services

The Welsh Government Paying for Care team held monthly meetings with policy officials from the UK government, the Scottish Government, and the Northern Ireland Executive. These meetings provided an opportunity to share policy direction and relevant research.

Welsh Government officials also worked with Home Office counterparts in relation to the Offensive Weapons Homicide Review Pilot and the Single Unified Safeguarding Review.

Children’s Social Services

Unaccompanied Asylum-Seeking Children

The UK government introduced legislation to tackle illegal migration, including the Nationality and Borders Act 2022 and the Illegal Migration Act 2023. Legislative Consent Memoranda were put before the Senedd, with the Senedd withholding consent. Engagement improved towards the end of the reporting period with the establishment of groups focused on implementing necessary changes, comprising various representatives including from UK Government, Welsh Government, Scottish Government, Norther Ireland Executive, local authorities, and third sector organisations.

Fostering

Welsh Government officials are part of a 4 Nations Group on fostering, a forum for sharing experience and expertise. The group aims to support and represent the interests of foster families across the UK.

Family Justice

The Welsh Government worked proactively with UK government on a number of issues including Public Law Working Group which published the Best Practice Guidance for the use of Supervision Orders in April 2023. Further work took place aimed at improving Court functioning post Covid-19 such as the National Recovery and the Data and Insights Group that helped ensure that there can be shared learning across governments regarding Family Justice.

The Welsh Government also worked alongside UK government during the development and implementation of Jade’s Law with the Victims and Prisoners Bill which received Royal Assent in May 2024.

Science 

Chief Scientific Advisers (CSAs) in UK Government Departments and agencies, along with the CSAs of Welsh Government and Scottish Government, met regularly, chaired by the UK government Chief Scientific Adviser. Northern Ireland did not have a CSA until June 2024, when their Chief Scientific and Technical Adviser (CSTA) was appointed. 

Due to various ministerial changes across governments, scheduled ministerial meetings were subsequently cancelled, resulting in no ministerial meetings taking place during this reporting period.

Justice and Community Safety

The Justice Inter-Ministerial Group met twice during this reporting period. In addition, bilateral discussions with the UK government took place on subjects such as family justice, the Welsh court estate and support for victims of major incidents. 

The Welsh Government continued to work closely with reserved agencies, the Home Office, HM Prison and Probation Service and the Ministry of Justice on criminal justice matters, including the Youth Justice Blueprint and Women’s Justice Blueprint. Official level relationships continue to be  generally positive. 

The UK government introduced several justice Bills, most of which were wholly reserved. The Welsh Government worked closely with the UK government on the Protection from Sex-Based Harassment in Public Act 2023, with a Memorandum of Understanding agreed in June 2023. The Welsh Government also supported the implementation of the Police Crime Sentencing and Courts Act and worked on the Victims and Prisoners Bill and the Criminal Justice Bill. The latter fell with the dissolution of Parliament, and the former was ultimately passed in May 2024 despite areas where the Senedd withheld consent.

Fire and Rescue

Relationships with the Home Office (which was responsible for fire policy until that transferred to Ministry of Housing, Community and Local Government on 1 April 2025) and other devolved governments are generally very positive. Collaboration included issues of culture, values, and conduct in the Service, the lessons of the Grenfell Tower fire, and reform of firefighters’ pensions; joint working on a comprehensive overhaul of statutory fire safety guidance has been particularly valuable. The Strikes (Minimum Service Levels) Act 2023 (which applies to firefighters amongst other groups of workers) was, however, passed without the consent of the Senedd or the support of the Welsh Government.

Armed Forces and Veterans 

Positive close working continued with the Ministry of Defence (MOD) and the Office for Veterans’ Affairs on supporting the Armed Forces Community through the Armed Forces Covenant in Wales. The Welsh Government also maintained contact with the MOD on Military Assistance to the Civil Authorities. 

Housing and Local Government

Welsh Government officials met UK government and devolved government counterparts quarterly to share updates on second homes and short-term lets. The Housing, Communities and Local Government Inter-Ministerial Group met twice, focusing on homelessness, building safety, affordable housing, and housing supply.

Relations and cross government working was positive from the perspective of non-domestic rates policy. There were bi-weekly official-level meetings during the development and introduction of the Non-Domestic Rating Act 2023, and constructive engagement on other non-domestic rates matters.

Social Welfare/Cost of Living

Child Poverty

Constructive contact at official-level continued on child poverty, with 6-monthly 4-nations meetings that enabled sharing of information on new child poverty policy initiatives. Ad hoc meetings with Scotland and Northern Ireland were also valuable.

Fuel Poverty

The Welsh Government regularly called on the UK government to introduce an energy social tariff. Following a commitment made by the Chancellor in 2022, there were discussions, but despite this there was no firm commitment on a consultation or announcement.

Social Welfare Advice and DWP Policy

Good relationships continued between the Department for Work and Pensions (DWP) and the Welsh Government, with regular liaison meetings. Progress was made with the setting up of a bilateral Inter-Ministerial Group on Work and Pensions, with the inaugural meeting taking place during this reporting period. Terms of reference were agreed, but a second meeting was postponed.

Basic Income for Care Leavers in Wales Pilot

The Welsh Government engaged with UK government departments on the pilot's interaction with tax, benefits, and legal aid. Good working relationships were maintained with the Department for Work and Pensions. Officials also shared learning with counterparts in Scotland and Northern Ireland.

Transport 

The Transport Inter-Ministerial Group met 3 times during this reporting period, including discussions on decarbonisation, supporting the freight industry, and data sharing. Official-level links with transport departments across all governments remained positive, with regular and meaningful engagement.

Culture and Creative Industries 

The Culture and Creative Industries Inter-Ministerial Group met once during this reporting period. Close working continued at official level, and Creative Wales engaged with the UK government on broadcasting matters, maintaining links to the Creative Industries Council.

Welsh Government officials discussed issues relating to the museums sector with the UK government, Scottish Government, and Northern Ireland Executive. The UK ratified the UNESCO Convention on Intangible Cultural Heritage, requiring the creation and maintenance of inventories, which Welsh Government were supportive of.

Sport 

Two Sport Inter-Ministerial Group meetings were held, one virtual and one in person. Welsh Government officials worked closely with the UK government’s Department for Culture, Media & Sport, the Scottish Government, and Northern Ireland Executive. Issues addressed included concussion, safeguarding and the Football Governance Bill which fell with the dissolution of Parliament.

Tourism

Despite several attempts the Tourism Inter-Ministerial Group did not meet during the reporting period. Welsh Government officials met UK government and devolved government counterparts quarterly to share updates on short-term lets and second homes. Proposals for a registration and licensing scheme for all visitor accommodation in Wales were discussed.