Rebalancing the Economy: Trade and Investment - Business, Innovation and Skills Committee Contents


2  Government Strategy

12. Trade and investment strategy has to be diffused through so many areas of government that establishing a clear strategy, and having mechanisms through which that strategy is implemented across the different arms of government, is essential. One of the key aspects of this inquiry was therefore establishing how the Government had performed in this area.

UKTI strategy

13. In July 2010, the Department published its Draft Structural Reform Plan which stated various targets for the new Government including (concerning trade):

  • Developing a Trade White Paper setting out the Government's strategy for growth through free, fair and open markets, including trade agreements, promoting trade facilitation, and cutting global red tape by December 2010; and
  • Publishing a UKTI strategy including measures to simplify regional activities by January 2011 (the previous UKTI five year strategy, Prosperity in a Changing World was published in 2006).[10]

14. The future and role of UKTI have been mentioned in numerous Coalition Government announcements and documents. In its Business Plan, published on 8 November 2010, the Department gave more detail on how the new UKTI strategy would be shaped, with emphasis placed on the need to:

  • Build stronger connections between UKTI and UK businesses; and
  • Improve the effectiveness of UKTI's overseas network in identifying export and inward investment opportunities.[11]

15. The Government failed to meet its own January 2011 target for publication, but in February 2011 the Department gave a further insight into its thinking with the publication of its Trade and Investment White Paper. This set the following aims relevant to UKTI:

    Increase UK Trade and Investment's focus on emerging markets and launch: a new online service offering access to sales leads around the world; a new online peer-to-peer exchange to enable companies to help themselves and help each other; and a new high profile award for companies which are ready to export, but need encouragement to take the next step.[12]

16. These aims were further refined in the Department's Plan for Growth which was published alongside the Budget on 23 March 2011. This announced a number of new schemes which would be run by UKTI:

  • mentoring by senior business specialists for companies taking their first steps into new markets;
  • an online peer-to-peer self help community network;
  • new business service for SMEs in the defence and security sector. This will include specialist tailored advice on selling to foreign governments;
  • UKTI will be used to provide UK businesses with local intelligence on high value projects overseas and intensive support to win these deals.
  • Making better use of private sector expertise, with a clear focus on winning business for the UK
  • a bespoke service to key inward investors, giving them direct access to UK ministers and speedy resolution of bureaucratic obstacles to investment.

17. When he came before us on 27 April 2011 (three months after the original deadline for publication of the strategy), we questioned the Secretary of State on the reasons behind the significant delay in publication of such an important piece of the Government's strategy for growth, particularly given that so much of it had been trailed in other BIS publications:

    Q9 Chair: Is it not odd that something so central to all the plans for growth that underpin the Government's economic strategy has not had its own strategy published and outlined? [...] Why has UKTI been so delayed when it is central to everything else the Government wants to achieve?

    Vince Cable: I think you may be over-dramatising this. As I have said, there is a very clear strategy and we have described it. I do not think that the publication date of a particular document should be regarded as utterly crucial.

    Q10 Chair: With respect, a clear strategy comes with publication and it has not been published yet.

    Vince Cable: The trade White Paper was a Government publication that I introduced to the Commons, and it described what we were trying to achieve in terms of trade and was strategic in its approach.

    Q11 Chair: But not UKTI.

    Vince Cable: I accept that clearly there will be more clarity and opportunity for you to hold us to account once that document is apparent, but it is not the only factor. As you know, the chief executive has not yet been appointed, and that is equally critical to giving a sense of strategic direction.[13]

18. The importance of having a Government trade strategy was highlighted to us by Phil Orford of the Forum of Private Business:

    If you look at all the businesses out there exporting as sales managers, plying their trade internationally, what we need is a sales director, someone who defines strategy, someone who's going to lead from the front, and I think that's where the Government's role should be. There absolutely needs to be a national strategy for international trade.[14]

19. On 11 May 2011, the Department finally published the UKTI strategy, missing its own target by four months.[15]

20. UKTI is a key delivery body in the Government plans for economic growth. The fact that it took a year to publish its strategy—and that publication was delayed by five months—does not reflect well on the Department. The Secretary of State told us that the strategy was outlined in the Trade White Paper and the Government's Plan for Growth. We therefore see no reason why the Government did not publish the UKTI strategy alongside either one of those documents.

21. While we welcome the Government's commitment to rebalancing the economy through an increase focus on trade and investment, its message and the perceived importance of this policy has been weakened by the late publication of the key strategy to deliver on this. We are concerned that this delay created uncertainty within UKTI at a critical time in the economic recovery and could have undermined its effective support for business.

Ministerial responsibility

22. Of further concern to us was a similar delay in the Government appointing a Trade Minister. Until the appointment of Lord Green in January 2011, the trade portfolio was covered by Ed Davey MP, Minister for Employment Relations, Consumer and Postal Affairs. The trade portfolio therefore had to compete with Mr Davey's other responsibilities which included postal affairs (Royal Mail and Post Office Limited), employment relations (including ACAS), consumer policy and consumer affairs, competition policy, corporate governance, company law (including Companies House), social enterprise, Insolvency Service (including company investigations), general oversight of Shareholder Executive and its portfolios, coordination of European business.[16] It is a concern that for such a priority area there was not a dedicated Trade Minister in place much earlier on in this Parliament. For a Government to place such emphasis on trade policy without providing either a clear strategy or a Minister with responsibility for its delivery for so long was not a shining example of clear and decisive policy-making. Furthermore, it did not send out the right message to the business community. Given that the Department for Business, Innovation and Skills is a key Department tasked with rebalancing the economy, we would have expected it to do better.

23. Although the position was late in being filled, we welcome the appointment of a Minister with the sole portfolio of trade and investment. Having started late, the Minister has certainly hit the ground running. We were impressed by the number of visits undertaken by Lord Green both in the UK and overseas and his work to promote not only the UK as a country to do business with, but also to encourage UK businesses to export. We heard from UK businesses and their representative organisations the importance of ministerial visits overseas to give the impression that UK businesses have the support of the UK Government. The CBI said:

    The involvement of key ministers in supporting UK business in overseas markets —e.g. by leading delegations on foreign trips, attending JETCOs[17], welcoming incoming delegations—is very helpful.[18]

Aerospace Defence Security (A|D|S) also welcomed the attention given to trade by Ministers:

    The support for exports that has been shown in recent months by the BIS Ministerial team on overseas trips to China and India for example is to be warmly welcomed.[19]

24. We recognise the importance of the ministerial visits overseas and the impact that they have on the world image of "Britain is open for Business". We welcome the appointment of Lord Green as Minister for Trade and the start he has made in this very important post.

Cross Government Working

25. Sir Andrew Cahn, the previous Chief Executive of UKTI, expressed concern (in an interview with the Independent newspaper on 8 March) that, outside the Foreign Office, few government Departments understood the importance of promoting Britain as a place to do business. He argued that the Civil Service had to take a more entrepreneurial approach toward decision-making and growing the economy:

    We need the whole of Whitehall to push in the same direction, and at the moment I don't think they do. [...] The Foreign Office really has changed and is focused and rather effective on promoting inward investment. But in all sorts of other departments it has no sort of priority at all.[20]

In the same interview he gave the following examples of how Whitehall culture should change:

    If you talk to the Department of Health they are simply not interested in pharmaceutical exports as an issue. You might say of course it's not high up their radar screen. But the fact is if you want to make sure that the big pharmaceutical companies are in this country, you need the Department of Health to play a role.

    You need Defra to be focused on food companies. You need the Department of Transport to be focused on transport companies. You need the DECC[21] to be focused on energy companies. There is real scope for the whole of Whitehall to be focused on export promotion in a way that they certainly haven't done in the last five years.[22]

26. The Government appears to be alive to Mr Cahn's concerns. In its Trade White Paper all Departments have been asked to:

    Examine how they can support trade and investment, as part of the Government's growth and prosperity agenda.[23]

27. This policy was expanded on in the UKTI strategy, which announced the creation of a new cross-government Strategic Relations Unit to be based within the UKTI. The Strategy states that the Unit will:

    Enable the whole of Government to be harnessed for the drive to win large scale inward investment and high value business overseas for our exporters.[24]

28. The cross-Departmental approach to trade and investment has also been addressed at Ministerial level with the establishment of a new Cabinet sub-Committee with responsibility for trade and investment. Announcing the sub-Committee, the Trade White Paper said that the main functions of the sub-Committee would be to :

    Provide[s] leadership in ensuring the whole of Government works toward supporting trade and investment and in challenging policies that risk or undermine this goal.[25]

    It continued that the sub-Committee would:

    Ensure coordinated action to implement the policies set out in this White Paper and continuous follow-through. The work of this committee will be prepared at official level by the most senior trade officials across Government, to enable the network of those with an interest to be fully plugged in and to ensure its decisions can be fully and expeditiously implemented.[26]

29. When he came before us, Lord Green said that the sub-Committee was to meet monthly and would have three standing items on its agenda. The first was the action plan with action steps, assigned responsibilities and timelines. The other two standing items had not yet been put in place but the Minister told us that one would be a grid of ministerial overseas visits (intended to introduce an element of co-ordination) and the other would be a monthly report on the most recent trade statistics.[27]

30. At the time of his evidence the sub-Committee had met twice and the Minister gave us the following assessment of its initial work:

    I have to report that the atmosphere on them is very good. You might say that this is still a honeymoon period as far as I am concerned, and of course that is true. Nevertheless, I start with a very strong sense that everybody wants to work together to get this right, and I hope and believe it will continue that way.[28]

31. We welcome the establishment of the new cross-government Strategic Relations Unit within the UKTI and a Cabinet sub-Committee with responsibility for trade and investment. We trust that these two new initiatives will link together to get the message across Whitehall that all Departments, and all Ministers, should be thinking about the role of trade and investment.

UKTI-FCO COMMERCIAL TASK FORCE

32. The role of the FCO in this work is clearly crucial. The Government has formed a new UKTI-FCO Commercial Task Force with the aim of driving a central commercial imperative into all aspects of FCO activity to support the whole of government delivering for UK business. The Trade White Paper said that:

    The FCO's Commercial Diplomacy initiative will harness more resource in FCO's overseas network to pursue our trade and investment goals, working closely with and complementing the work of UKTI's overseas trade teams.[29]

33. The FCO, at the time of the launch of the UKTI strategy, published "A Charter for Business" which contained seven points to inject commercialism into the Foreign Office. In this were announcements that included the creation a of a new Commercial and Economic Diplomacy Department; a new Economics Unit; an increase of resources dedicated to the prosperity agenda; new commercial diplomacy training for staff; and a new emphasis on secondments and short attachments to business for British Ambassadors and High Commissioners.[30]

34. We welcome the publication of the FCO's Charter for Business and will monitor its implementation. We will expect the Department for Business, Innovation and Skills to ensure that progress towards implementation of the Charter complements its own work on trade and exports. We recommend that in its response to our Report the Department's sets out the Government's progress in this regard.

British Business Ambassadors

35. The British Business Ambassador scheme was set up under the previous Government in October 2008. On 9 November 2010, the Prime Minister announced a re-launch of the network with an expanded membership including, among others, Tamara Mellon, co-founder of Jimmy Choo, and former CBI Director General Lord Digby Jones. There are now 32 Ambassadors and a list of them is annexed to the back of this report.

36. The Prime Minister, announcing the re-launch, gave a flavour of how the Business Ambassadors would help promote UK businesses and UK Trade:

    The appointees, who together have a wealth of business experience and knowledge gained from a series of sectors and geographical markets, will join the Prime Minister and the Coalition Government in promoting the UK's excellence in overseas markets. They will also assist UK businesses to recognise and exploit business opportunities.[31]

THE ROLE OF BUSINESS AMBASSADORS

37. The Business Ambassadors volunteer their time and do not have any formal role in Government. The Department stated that their role is:

  • When travelling on business, carry out priority meetings at the request of UK Trade & Investment (UKTI), for example lobbying to remove barriers to market access or leading events for SMEs;
  • Undertake dedicated overseas visits or lead missions in agreement with UKTI;
  • Advise UK Ministers and Ambassadors on key business priorities and interests as they might arise;
  • Meet overseas Ministers and inward missions;
  • Provide insights into how UK Trade & Investment (UKTI) can best deliver for business; and
  • Contribute to Government-to-Government dialogues with China, India, Brazil, Russia, Vietnam, Eastern Europe and other key markets.[32]

38. UKTI stated that the key objectives for the network were to use each Business Ambassador's individual experience of doing business internationally, and their unique market and sector knowledge, to:

  • Promote the UK's excellence and the UK's favourable business environment;
  • Help UK businesses recognise and exploit overseas opportunities; and
  • Support UK businesses, Heads of Mission (HM Ambassadors and High Commissioners) and UKTI trade teams overseas.[33]

39. While business organisations generally supported the British Business Ambassadors scheme, and welcomed its re-launch, a number of concerns were raised by our witnesses. The CBI was unclear about the ability to identify the impact of the scheme,[34] and A|D|S commented that there was a need for:

    Greater clarity and guidance from Government as to the remit of each Ambassador and the process by which trade associations can represent their members, particularly SMEs.[35]

40. Particular concerns were raised with us about the range of sectors represented by the Business Ambassadors. The British Chambers of Commerce argued that the Network's membership was almost exclusively drawn from very large companies which was not necessarily helpful to SMEs:

    A lot of SMEs with which I come into contact from my membership or even just from the wider SME community would say to me, "I don't see how this person can help me represent my interests overseas".[36]

41. In a similar vein, the food and drinks industry and the creative industries were both concerned that their sectors lacked a representative on the Business Ambassadors Network.[37]

42. We recognise the concerns of SMEs, the creative industries and the food and drink industry that they are not fully represented on the Ambassador's Network. We recommend that the Government ensure that all sectors of the UK economy have a representative on the Network who can speak for their interests and that this should not be limited to individuals from big business.

43. When we questioned several of the new Ambassadors about their role and effectiveness, Nick Fry, believed that they should be judged on results:

    I think we do need very specific targets; I think the business ambassadors need a clear mandate, and to be given objectives. The way we run our business is with an almost laser like focus on achieving results, and if this initiative is to be a success we do need to follow through from general advertising about how good we are, to setting out the things we hope to achieve with very clear targets. Then we can get back to measuring whether we achieved these and if not, why not.[38]

Sir Roger Bone explained how he saw his role:

    It is a mixture of advocacy, of targeting potential inward investors, as well as helping, in a hands on way, potential exporters overseas. In my own case, as an ambassador for British business, I have both interacted with business men on the west coast of the United States, potential investors here, and spoken at a forum of SMEs at Loughborough University in the West Midlands, preparing to invest overseas in emerging markets for the first time.[39]

Lord Powell thought it was in fact very hard to measure the impact of the work of Business Ambassadors in precise terms because:

    At the end of the day, we don't do the business. It is the companies that do the business and that is where the impact is felt. I would say that yes, I think I have contributed to raising awareness of Asian opportunities across the UK, particularly amongst SMEs. That is quite specific but you cannot measure it in pounds gained in export orders. You can see export figures for Britain go up, and you can think "Maybe I helped with that", but you cannot give anyone credit for that, other than the companies that actually make the sales.[40]

Sir Roger Bone suggested:

    We dip in and out of the process. We give of our time as and when we are somewhere, and when we can add value to an ongoing process. Looking back on it, I sometimes feel that it is difficult for us to get a feel as to how much our personal contribution has been to the process or target. So, more feedback from UKTI on how we have done would certainly be welcome.[41]

44. The British Business Ambassadors Network is a useful tool at the Department's disposal. While we appreciate that the Ambassadors give their time for free, we agree with Nick Fry (a member of the Network) that they should have both a clear remit and measureable targets. We do not necessarily recommend individual assessment but we believe that the effectiveness of the Network would benefit from review. It may be that the Ambassadors themselves would be best placed to judge their effectiveness against the criteria set out by the Department. We recommend that the Department publishes these assessments—in terms of activities and outcomes— at regular intervals.

CATALYST UK

45. The British Business Ambassadors have been tasked with promoting the UK on a senior global level. The UKTI is also looking at a similar scheme on a more populous level. Lord Green said:

    A further opportunity yet to be developed—an idea that came from Ed [Ed Davey, Minister for Employment Relations, Consumer and Postal Affairs], in fact—is the notion of using the diaspora in this country of people with connections. South Asia is an obvious part of the world but not the only one. Making use of their connections with and enthusiasm for being in this country as part of support for exports into their countries of origin is something we have not tapped and we should look at.[42]

46. In evidence, UKTI told us that it was establishing Catalyst UK, a global network of 100 "advocates for Britain" from the business and academic communities to deliver this aim. Catalyst UK is described by the Government as a network:

    Made up of people who are trusted in their fields and can make a case for investing in the UK and doing business with UK companies and includes business people and academics with a strong affinity for Britain, including generations of Britons who have moved to other countries and many thousands of business people from overseas who have studied here, traded with British companies, or invested in Britain.[43]

The intention is that these advocates would share their experience and insights with less experienced exporters and therefore mentor companies, especially SMEs, taking their first steps into new markets.[44] The UKTI strategy announced that the 100 advocates already on board included CEOs of FTSE 100 companies and established entrepreneurs.[45]

47. This is a welcome initiative but one which is not new. In January 2010, our predecessor Committee was told of the establishment of 'UK Global Connections'—funded by the Strategic Investment Fund—which would be:

    A new global network of people who have real influence and are willing to work with us in promoting the benefits of the UK as a great place to do business. […] The network will make it easier for UKTI people to spot and deploy capable partners, from the network, willing to work with us as speakers at our events, mentors to new exporters or inward investors, people who can enable business opportunities or influencers who can make the things we want to see happen.[46]

48. We welcome the creation of 'Catalyst' as a useful lever to attract inward investment. However, given the fact that this was an existing activity in UKTI we see little merit in a rebranding exercise which diverts valuable resources from delivering meaningful services to business. If it is a different programme then the Department should set out in detail how it has changed and how it will utilise the diaspora in this country and alumni of UK universities living abroad.

The UK exporting culture

49. Outside and above the structures put in place by Government to promote overseas trade and investment, at the end of the day success comes down to decisions by individual companies and entrepreneurs. Lord Powell, one of the Business Ambassadors, told us that the UK's 'mercantile' spirit needed to be 'liberated':

    I think it has become rather submerged by regulation and tax, and reforms in the economy are strongly needed to set it free again.[47]

There have been a number of business surveys carried out recently looking into whether UK companies are exporting and if not what is preventing them.

50. The FSB in its report Made in the UK: Small businesses and an export led recovery based on a survey of its members found that under a quarter (23%) of its members exported. 67% of UK companies that were not exporting felt their business only satisfied local need and 73% of respondees said they lacked a suitable product or service to export. Of the countries which FSB members exported to 87% exported only within the EEA and 45% exported to USA. Its members suggested better promotion of support available, tax breaks and tailor made information for small firms recommended to encourage exporting among small businesses.[48]

51. The British Chambers of Commerce (BCC) survey in 2009 Exporting Britain had similar results. Of the businesses that did export, 58% did so because they had been approached by a customer. A further survey carried out by the BCC into manufacturing found that of the businesses that responded 32.7% felt that better export support from the Government would be one of their top three policy changes to get manufacturers exporting.[49] The BCC also claimed that incentives that had encouraged both first time and existing exporters to enter new markets have been gradually removed over the past 20 years. It gave the example of taxation allowances which it believed had had a role in encouraging exports. Of particular note to the BCC was that prior to the early 1990s, companies were able to offset entertainment of foreign clients at home and abroad against Corporation Tax. It believed that exporters could be spurred into exploring new markets if companies were able to offset the costs of exploring new markets against Corporation Tax in the same way as capital investments. It also noted that previously export salesmen were able to claim income tax rebates if they had spent over thirty days in a row outside the UK. The BCC highlighted that this acted both as an incentive for British firms to send their employees out into the world, and as a recruiting tool for a role that involves spending long amounts of time away from their home and families.[50]

52. The Forum of Private Business (FPB) research Exporting and Foreign Exchange found that lack of information was the most frequently cited reason as a barrier for developing business either into exporting or into expanding exports. They too found that a large amount—67% of businesses who were not exporting—felt that their business was not conducive to exporting or that their business only satisfied a local need. Phil Orford of the FPB believed it was a mindset issue which was also:

    Clearly both an educational issue, but also, at the risk of overdoing the word, a mentoring issue. These businesses owners do need to see practical examples of what's going on on the ground, and the development of that sort of network would be very helpful.[51]

The FPB also recommended that greater support and training was needed from Government if it was determined to encourage businesses to internationalise.[52]

53. The Secretary of State recognised that getting SMEs to export was a challenge:

    I think that a third of British SMEs get involved in international trade; in Germany it is much, much higher. If we are to turn the country round in terms of trade performance, those are the people we have to engage. That is why a special effort has to be made.[53]

54. In response to these concerns and the need for support, and possibly, the need to raise awareness of potential export opportunities, the UKTI strategy has set the target of 'reaching out' to 25,000 UK companies a year up from an average of 20,000 over the last three years.[54] It should be noted that according to the Department there are nearly five million SMEs in the UK.[55] We discuss in Chapter 5 the tools the Government has at its disposal to achieve this aim.

55. We take the view that the mercantile spirit in the UK is alive and well, but we also recognise that in difficult economic times, hard-pressed small businessmen and women may be so busy concentrating on domestic business that they do not have the time or resources to consider the international market. In this context additional support from UKTI is vital and we look forward to hearing whether UKTI can deliver on its outreach target. The Government should also consider what incentives could be put in place or reintroduced to encourage companies to explore moving into international markets.

56. The fact that survey data suggest that few businesses are pro-actively pursuing export opportunities demonstrates the importance of an aggressive marketing strategy, run by UKTI, to highlight to SMES the benefits of exporting. In that respect, the outreach target of UKTI developing contacts with 25,000 UK companies represents a modest figure considering the fact that there are just under five million SMEs in the UK.


10   Department for Business, Innovation and Skills, Draft Structural Reform Plan, July 2010 Back

11   Department for Business, Innovation and Skills, Business Plan, November 2010 Back

12   Department for Business, Innovation and Skills, Trade and Investment for Growth, Cm 8015, February 2011 Back

13   Oral Evidence taken before the Business, Innovation and Skills Committee, The Government's Strategy for Growth, HC 945-i, Qq 9-11 Back

14   Q 96 Back

15   UK Trade & Investment, Britain open for business, May 2011 Back

16   www.bis.gov.uk/ministers Back

17   Joint Economic and Trade Committees Back

18   Ev 165 Back

19   Ev 149 Back

20   "Whitehall must do more to promote UK, says Cahn", The Independent, 8 March 2011 Back

21   Department for Energy and Climate Change Back

22   "Whitehall must do more to promote UK, says Cahn", The Independent, 8 March 2011 Back

23   Department for Business, Innovation and Skills, Trade and Investment for Growth, Cm 8015, February 2011, para 3.13 Back

24   UK Trade & Investment, Britain open for business, May 2011, p 29 Back

25   Department for Business, Innovation and Skills, Trade and Investment for Growth, Cm 8015, February 2011, para 3.14 Back

26   Department for Business, Innovation and Skills, Trade and Investment for Growth, Cm 8015, February 2011, para 3.14 Back

27   Q 478 Back

28   Q 478 Back

29   Department for Business, Innovation and Skills, Trade and Investment for Growth, Cm 8015, February 2011, para 3.13 Back

30   Foreign and Commonwealth Office, A Charter for Business, May 2011 Back

31   "PM announces new Business Ambassadors", Number 10 press release, 9 November 2010 Back

32   Ev 144 Back

33   Ev 131 Back

34   Ev 169 Back

35   Ev 152 Back

36   Q 9 Back

37   Q 234 & Q 67 Back

38   Q 144 Back

39   Q 142 Back

40   Q 143 Back

41   Q 145 Back

42   Q 535 Back

43   UK Trade & Investment, Britain open for business, May 2011 Back

44   UK Trade & Investment, Britain open for business, May 2011 Back

45   UK Trade & Investment, Britain open for business, May 2011 Back

46   Business Innovation and Skills Committee, Third Report of Session 2009-10, Exporting out of Recession, HC 266, para 112 Back

47   Q 136 Back

48   Ev 179 Back

49   Ev 160 Back

50   Ev 159 para 2.2-2.3 Back

51   Q 110 Back

52   Ev 184 Back

53   Oral Evidence taken before the Business, Innovation and Skills Committee, HC 945-i (2010-12),Q 23  Back

54   UK Trade & Investment, Britain open for business, May 2011, p 13 Back

55   Department for Business, Innovation and Skills, Economics and Statistics, Enterprise Directorate: Small and Medium Enterprise Statistics for the UK and Regions Back


 
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© Parliamentary copyright 2011
Prepared 11 July 2011