Background
Since the establishment of the Senedd, its usual largest party, the Welsh Labour party, has not gained an outright majority in the devolved parliament. To allow past government plans to pass, formal coalition agreements had been agreed, previously with the Liberal Democrats, Plaid Cymru or individual members including Dafydd Elis-Thomas and Liberal Democrat Kirsty Williams. Confidence and supply agreements have also been used. The 2021 agreement is not a coalition or supply and confidence agreement, [1] and described by the parties as a "bespoke agreement". [2]
Previously, the Welsh nationalist party, Plaid Cymru and Welsh Labour had a coalition agreement, One Wales between 2007 and 2011, and in 2016 agreed to a "compact" deal, following that year's assembly elections. [3]
Following the 2021 Senedd election, the Labour Welsh Government won 30 of 60 seats, one below an absolute majority, forming a minority government. Plaid Cymru won thirteen seats. [2] [4] Following the election Welsh Labour announced it planned to govern without any formal assistance with members from other parties. [5] But Welsh academic, Laura McAllister, argued a deal with another party was needed if Welsh Labour wanted to pass big or radical legislation through the Senedd. [6]
Agreement
Initial talks
Talks were conducted over summer 2021, with the two parties publicly reporting they were in talks in September 2021. Reports of the two close to reaching a final agreement were raised on 19 November 2021, although details were not provided as it still required ratification by both parties. [3] [7] [8]
When reports of talks were raised in September 2021, BBC News stated the two parties are likely to agree on Senedd reform, social care, council tax reform, free school meals and tackling second homes, but disagree on Welsh independence. [9]
The Welsh Liberal Democrats, who have one MS, just enough to achieve a working majority with Welsh Labour, was not involved in any talks with the Welsh Government, despite a previous coalition between the Liberal Democrats and Welsh Labour. The leader of the Welsh Liberal Democrats, Jane Dodds MS, said not being in talks was "right". UK Liberal Democrats leader Ed Davey, supported the Welsh branch not being in talks, allowing Dodds, the party's sole Welsh MS, to be an independent opposition voice, and said a deal was never proposed to the party by the Welsh Government. [10]
The executive committees of Welsh Labour and Plaid Cymru approved a deal for the two to cooperate in the Senedd on 21 November 2021. [4] Although further support from Plaid Cymru's party membership was still required at the time. [11]
Announcement and ratification
The agreement was formally announced on 22 November 2021, by both leaders in front of the Senedd building. [2] Welsh Labour leader and first minister Mark Drakeford stated the agreement would bring a "stable Senedd" which can deliver "radical change and reform". Plaid Cymru leader Adam Price, called it "historic" for Wales, and allowed the party to both push its main priorities and criticise Labour on issues not in the agreement. [2] At Plaid Cymru's conference on 26 November, Price described the agreement as "a new kind of politics" and a "down-payment [...] on independence", that allowed the party to become a "co-opposition party" rather than just a traditional opposition party. [12] The agreement involved only Welsh Labour government ministers and not the party's backbench members, according to those backbench members. [13]
The Plaid Cymru membership ratified the agreement during their annual conference on 27 November 2021 after 94% of the party's members supported the agreement, [14] and on 1 December 2021, the agreement came into force after the two parties officially signed the agreement. [1] [2] [15]
Plaid Cymru can appoint special advisers to work within offices of the Welsh Government, but as it is not a coalition, no members of Plaid Cymru's Senedd Group can join the Welsh Government as ministers or deputies. [2] Plaid Cymru would appoint a designated lead member for the agreement. While committees formed of Welsh Government ministers and designated members of Plaid Cymru would be formed to agree on issues covered in the agreement. Funding for the agreement were made part of the Welsh Government's budget. [16] The Welsh Government stated Plaid Cymru can contribute to Welsh Government press releases, and there would be regular joint media briefings with leaders of the two parties. [13]
The agreement was described by the leader of the Scottish National Party, Nicola Sturgeon, as grown up politics. While the Welsh Liberal Democrats commended it. The Conservatives condemned the deal. UK Labour leader Keir Starmer, stated in September 2021 during the initial talks, that he would not interfere with them, [17] although when the final deal was agreed, Starmer nor the UK party commented on the deal at the time. [18] Some senior Labour MP's in Wales did not comment on the agreement, a week after it was announced, with only four Labour MP's in Wales commenting with different amounts of praise. [19] Plaid Cymru MP, Liz Saville Roberts, argued that the deal signified a divergence between Welsh Labour and UK Labour, and that Welsh Labour was more closer to Plaid Cymru than UK Labour, as it agreed with Plaid Cymru over more policies, while UK Labour ignored them. [20]
By June 2023, the agreement's designated members from Plaid Cymru were Siân Gwenllian and Cefin Campbell. [21]
The agreement lasts three years and involved the two parties working together in "46 policy areas". [1] It is due to end in December 2024, with Plaid Cymru stating in October 2023, that it will not be extended. [20] In December 2023, Mark Drakeford clarified that as part of the deal Plaid Cymru could command influence over the Welsh Government's budget, beyond the agreed areas. [22] [23]
Criticism
Following the announcement of the agreement, Welsh Conservative MS Darren Millar, said the deal "fails to deliver on the priorities of the people of Wales", criticising the deal's lack of commitments on tackling the crisis in NHS Wales, issues with Welsh infrastructure and Wales' economic performance, [2] and the deal was a "move towards Welsh independence". [25] Concerns over the lack of healthcare measures were also raised by the Liberal Democrats. [14] On 1 December, UK Conservative Secretary of State for Wales, Simon Hart, called it an "absolute travesty", that allows Plaid Cymru to "claim credit" for government policies while also acting as an opposition party. [15] In October 2023, Cefin Campbell, the deal's co-designated Plaid MS, stated that Plaid Cymru should be allowed to claim credit for the deal's policies, such as free school meals, as it was in their manifesto but not Labour's. [20]
The Welsh Conservatives described the deal in December 2021 as undermining the work of the Welsh parliament. The Conservatives questioned Plaid Cymru's opposition status, and that for the government to be properly scrutinised, changes are to be made. If Plaid Cymru is considered as "effectively in government" rather than an opposition, one of the parliament's two presiding officers, Elin Jones of Plaid Cymru has to be from an opposition party instead. However, the rules specify a party's "executive role" defined as having government ministers which Plaid Cymru do not have as part of the agreement. [26]
In December 2021, Labour MS Alun Davies, stated that while the deal "might not be a coalition, [...] it looks like one", and that Plaid Cymru is "clearly part" of the Welsh Government. This was rejected by Welsh business minister Lesley Griffiths who stated "this is not a coalition", as well as Plaid Cymru. [26] [13] Davies stated that backbench members of Welsh Labour had not been party to the agreement, which involved only Welsh Labour ministers. Rhun ap Iorwerth, Plaid Cymru MS, did say he would prefer a coalition agreement. [13] Hefin David, Labour MS, called on the presiding officer to make appointees of Plaid Cymru to also be called to answer questions in the Senedd, while also supporting the deal. [13]
In July 2022, the Welsh Conservatives claimed that Plaid Cymru leader, Adam Price failed to challenge the Labour first minister, Mark Drakeford because of the deal. Plaid Cymru stated, they do oppose the government "strongly" on issues outside the agreement. [27]
In February 2023, Hefin David, Labour MS, criticised the agreement, saying it gave Plaid Cymru "power without responsibility". During the debate on the Welsh Government's budget, Plaid Cymru abstained to allow the budget to pass, but criticised ministers for not raising income tax to increase NHS funding. David argued for a formal coalition government or a confidence and supply agreement over the current deal, which David described as "worst of both worlds". [28]
In March 2023, Adam Price MS, Plaid Cymru leader, said he would prefer a coalition government over a co-operation deal, as it would allow Plaid Cymru to be in government to govern Wales and move forward in achieving Welsh independence. [29]
In May 2023, Ken Skates, Labour MS and former Welsh Government economy minister, called for the agreement to end, following a report into inappropriate behaviour tolerated within Plaid Cymru. Skates states he wouldn't like to work "with bullies, misogynists or anyone who discriminates against others". [30] [31] Following the report, Mark Drakeford, Welsh Labour leader, suggested the agreement is under review following the developments within Plaid Cymru. [32]
In December 2023, David Rees, Labour MS, questioned whether the co-operation deal was being prioritised for funding over other parts of the Welsh Government's programme. First Minister, Mark Drakeford, stated that funding commitments to the deal were "ring-fenced", but Plaid Cymru can influence the budget, while Plaid Cymru leader Rhun ap Iorwerth, stated the deal's commitments were "a small percentage" of the £20 billion budget. [22] [23]
In March 2024, Plaid Cymru leader Rhun ap Iorwerth, stated that the remaining length of the agreement should be discussed, following the campaign and subsequent election of Vaughan Gething as Labour leader and first minister. [33]
In April 2024, calls were made for Plaid Cymru to end the agreement, due Labour defending a £4.5 million reduction of the budget to Amgueddfa Cymru – Museum Wales, with the museum stating they may have to close National Museum Cardiff as a result. [34]
