British Council Tailored Review 2019 - February 2019
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British Council Tailored Review 2019 February 2019 British Council Tailored Review 2019 1
Cover photo © Mat Wright/British Council
Contents
Overview.............................................................................................................. 5
Full list of recommendations................................................................................. 7
Introduction—aims and approach......................................................................... 9
Section 1—Purpose............................................................................................ 11
Chapter 1: Overview of the British Council...................................................... 11
Chapter 2: Objectives..................................................................................... 12
Section 2—Delivery............................................................................................. 20
Chapter 3: Effectiveness................................................................................. 20
PART I: British Council framework............................................................... 20
PART II: UK Government Framework.......................................................... 25
Chapter 4: Working with UK Government and the devolved administrations... 34
Chapter 5: Structure & Controls...................................................................... 40
Section 3—People and process........................................................................... 45
Chapter 6: Status and Sustainability................................................................ 45
Chapter 7: Operating model........................................................................... 52
Chapter 8: Efficiency...................................................................................... 56
Chapter 9: People........................................................................................... 62
Annexes.............................................................................................................. 68
A: 2014 Triennial Review Recommendations: summary of implementation.68
B: Challenge Panel and Review Team......................................................... 73
C: Heads of Mission survey results.............................................................. 74
D: External survey results............................................................................ 83
E: Comparative Analysis of British Council in relation to other international
cultural relations bodies......................................................................... 87
F: British Council Principles of Corporate Governance Assessment.............. 884 British Council Tailored Review 2019
Overview
The British Council is the UK’s international with identified benefits realisation. Many of the
organisation for cultural relations other changes are still in the process of bedding
and educational opportunities. down; the impact of others—for example,
commercial separation—is yet to be fully felt.
Established in 1934, the British Council
formed part of the UK Government’s The British Council is aware, however, that it needs
efforts to mitigate the impact of global to do more to remain fit for purpose in a volatile
insecurity and to promote British culture. and contested environment. It must continue to
ensure that it serves wider UK interests to best
The British Council continues this role today.
effect, and provides value for money. Although
It has operations both overseas and within the the British Council has introduced a new and
UK. It provides a significant contribution to the robust results and evidence framework, it remains
extension of our soft power. In the context of challenging to assess its overall effectiveness.
the UK’s exit from the European Union, as the
This Tailored Review aims to provide further
UK charts a new course for itself in the world,
impetus to the British Council’s modernisation
this role retains its importance for the UK.
efforts. We do not believe that the British
Internationally, there is a greater recognition of Council needs radical reform (with the risks
the value of organisations such as the British that that would entail), nor that that would
Council. Cultural relations is an increasingly best serve UK interests at the present time.
competitive and crowded space.
We have identified a number of areas where
In order to respond to these challenges, the the British Council, and more broadly the UK
British Council needs to continue to evolve. Government, can achieve greater impact. These
This Review has concluded that the British recommendations are reflected throughout this
Council fulfils an important and unique role. It report. We believe that implementing these
helps in creating knowledge and understanding recommendations will reinforce the British
between the people of the UK and other Council’s position, and ensure that it remains fit
countries. It remains a world leader in its field. for the future. The key recommendations are:
Many regard the British Council as an The Foreign and Commonwealth Office (FCO) and
enduring and authentic partner, with a strong British Council should agree an overarching strategic
brand. Its standing—strategically aligned objective for the British Council (Recommendation
with but operationally independent from 1). The British Council and FCO should also
Government—is widely seen as an asset. agree priority areas with named Senior Reporting
Officers (SROs) (Recommendations 3 and 4).
There is some good, though incomplete, evidence
of the British Council’s impact. Its operating model Objectives should be coupled with detailed
is effective. The Review does not recommend performance indicators that align with
any changes to its status at the present time. the British Council’s results and evidence
framework (Recommendation 2).
The British Council is broadly on a solid foundation.
That is partly the result of the reforms introduced The British Council’s activities should focus on its
following the 2014 Triennial Review of the core strengths of promoting English language,
British Council. After some initial hesitation, the education, and British culture. It should consider
British Council has embraced those reforms as withdrawing from areas that are not clear or distinct
well as a broader modernisation programme. strengths or do not support its core mandate, such
as governance and justice (Recommendation 10).
Since 2014, financial management in particular
has improved markedly. The British Council has The British Council should significantly increase
introduced a significant change programme, the level of the surplus it generates to fund
British Council Tailored Review 2019 5cultural relations activities, through growing its commercial business and further increasing its operational efficiency, whilst maintaining operational reach (Recommendation 25). The British Council should carry out a zero- based review of its global estate, with a view to co-locating with overseas posts where possible (Recommendation 24). The British Council should implement vigorously its human resources change programme (Recommendation 26). The British Council and FCO should jointly develop plans to respond to any significant disruption, including as a result of EU Exit, a change in government funding or a loss of commercial revenue. The British Council should consider a wide variety of options, including selling parts of its commercial business or other assets, improving efficiency, and reducing investment (Recommendation 19). The British Council and FCO should agree a formal framework for regular senior level dialogue and engagement (Recommendation 14). A reinforced FCO sponsor team should support this, and actively support cross-Government engagement (Recommendation 12). A renegotiated FCO- British Council Management Statement should underpin this (Recommendation 13). The British Council should work with the Department for International Trade (DIT) to promote more effectively commercial opportunities in the education sector. The British Council should consider transferring ownership of the portal used to list opportunities to DIT (Recommendation 23). 6 British Council Tailored Review 2019
Full list of recommendations
Recommendation 1: The FCO’s single demonstrate quantifiably how the British Council
departmental plan should include a high is supporting the UK economy (page 34).
level British Council objective (page 14). Recommendation 10: The British Council
Recommendation 2: The British Council and should focus on its core objectives of promoting
FCO should agree, in line with the Management the English language, education and British
Statement, more detailed strategic objectives culture, and reconsider all its non-core work,
for the British Council that include indicators in particular its justice and governance work.
and timelines for measurement. All British Absent a strong rationale on the British
Council work (including monitoring and Council’s added value, it should consider
evaluation) should flow from this (page 15). withdrawing from these areas (page 34).
Recommendation 3: The British Council Recommendation 11: The British Council
should simplify and streamline its strategic and FCO should agree a procedure or
framework and business planning, making clear escalation mechanism for identifying activities
at all stages the links between activities, outputs or announcements by the British Council that
and overall strategic objectives (page 15). could appear inconsistent or conflict with UK
Recommendation 4: Senior reporting Government policy. To improve the FCO’s and
officers should be appointed for each the British Council’s mutual understanding of
strategic objective (page 15). risks, the British Council should regularly share
its top risk register with the FCO (page 36).
Recommendation 5: All FCO diplomatic posts
should incorporate relevant British Council Recommendation 12: The FCO should
objectives in their annual integrated country increase the resources it allocates to managing
business plans, and use them to drive alignment the relationship with the British Council, whilst
and complementarity of work (page 16). ensuring the British Council operates with the
appropriate level of independence (page 36).
Recommendation 6: The British Council should
ensure its work is closely aligned with the UK Recommendation 13: The British Council’s
Government’s priorities, and that the British Council Management Statement should be renegotiated
engages with UK Government departments and to reflect the recommendations in this report
the devolved administrations when agreeing its and to ensure it reflects both the frequency and
priorities for 2019/20 so that stakeholders can range of different areas and responsibilities for
contribute in a meaningful way (page 17). FCO and British Council engagement, such as
long term strategic priorities, human resources,
Recommendation 7: The British Council should finance and estates issues (page 36).
strengthen its monitoring and evaluation through
more robust and longer term impact reporting and a Recommendation 14: The British Council and
more rigorous approach to sharing evaluations and the FCO should agree a formal framework for
lessons learned internally and externally (page 25). regular senior level dialogue and engagement.
This framework should be set out in the
Recommendation 8: The British Council should renegotiated Management Statement (page 36).
compile quarterly examples of impact and review
key performance indicators for impact annually. This Recommendation 15: The British Council and
reporting should be shared with the British Council FCO should develop a clear set of expectations
Board, the FCO sponsor department and other and standard operating procedures, to be applied
relevant UK Government departments (page 25). in a consistent way across their networks, on how
British Council country offices and UK diplomatic
Recommendation 9: The British Council posts should work together (page 37).
should strengthen its impact evidence base
through tracking and deepening key influential Recommendation 16: The British Council should
relationships, including a more structured approach keep the FCO informed of its engagement with
to alumni; and designing more robust metrics to other government departments and the devolved
administrations, so that the FCO can support the
British Council Tailored Review 2019 7British Council and identify cross government Recommendation 23: The British Council synergies. The nature of the role should be clarified should work with DIT to promote more in a new Management Statement (page 38). effectively commercial opportunities in the Recommendation 17: The British Council education sector. They should consider and the FCO should review and monitor the transferring ownership of the portal currently impact of the dual role guidance within 6-8 used to list opportunities to DIT (page 56). months, and assess whether further changes are Recommendation 24: The British Council needed. This guidance should be shared with should undertake a zero-based review of its all stakeholders with whom the British Council estate in the next financial year, considering currently bids/receives funding from and regular whether its premises are optimal for undertaking training on this guidance provided to both cultural and commercial activities and whether internal and external stakeholders (page 40). efficiencies can be found through co-location Recommendation 18: The British Council with UK diplomatic premises overseas in line should ensure its Trustees understand fully the UK with the One HMG agenda (page 59). Government’s guidance on governance systems Recommendation 25: The British Council and board responsibilities. Cabinet Office guidance should continue its current model of growing its on corporate governance in central government commercial surplus to support cultural relations departments and HM Treasury guidance on activities. It should look to increase significantly the managing public money should be included in level of surplus generated to fund cultural relations the standard induction documents (page 44). activities through a combination of increasing Recommendation 19: The British Council should revenue and increasing its operational efficiency. develop clear contingency plans to respond to a Clear targets should be developed for surplus potential significant reduction in any of its sources generation and efficiency savings (page 62). of income. This should be discussed with the Recommendation 26: The British Council FCO at all stages and take into account wider UK should ensure sustainable funding for the human Government priorities. The British Council should resource transformation programme, including consider all possible options, including selling shared services in Noida, as well as establishing parts of its commercial business or other assets, regional centres of excellence (page 63). reducing investment and services, and using Recommendation 27: The British Council reserves to implement efficiency gains (page 51). should, as a matter of urgency, support Recommendation 20: The British Council ongoing work to draw up a strategic workforce should continue to pilot franchising of its plan, as well as efforts to develop leadership commercial activities in mature markets, capability (including talent management) to assess whether both quality and the across the organisation (page 63). current benefits from directly managing such Recommendation 28: The FCO and British Council operations can be maintained (page 55). should renegotiate the Management Statement, Recommendation 21: The British Council agreeing a specific procedure for considering should have clear criteria for deciding when exceptional pay requests, ensuring that official UK it will develop its own products, and publicise Government procedure is included (page 63). this to the English language and education Recommendation 29: the FCO and British sectors. Where it looks to develop new products Council should update the Management this should be done in partnership with UK Statement to ensure it accurately reflects the organisations wherever possible (page 55). agreed appointment process for the Chair and Recommendation 22: The British Council should Deputy Chair of the Board of Trustees. This ensure that its grant-in-aid funded operations do should state where the process follows the not inadvertently promote International English principles of the office for the Commissioner for Language Testing System (IELTS) above other English Public Appointments (OCPA) governance code language assessment. When renegotiating the and highlight where there are differences or IELTS consortium joint venture, the British Council exemptions. The process should be set out in an should explore the scope to provide further support annex to the Management Statement (page 65). to non-IELTS English language tests (page 55). 8 British Council Tailored Review 2019
Introduction—aims and approach
1. This tailored review has looked both at the Aims of the 2019 tailored review
performance of the British Council, and at how
7. The UK Government’s approach to public
it is able to respond and adapt to those factors
bodies’ reform for 2015 to 2020 is based
which are most likely to affect demand for
on a two-tier approach to transformation.
its services over the short-to-medium term.
The first element consists of a programme
2. In doing so, the review has endeavoured of cross-departmental, functional reviews
to take into account wider developments, coordinated by the Cabinet Office. This
such as ‘Global Britain’ and the potential is complemented by ongoing, robust
impact of exiting the European Union (EU) tailored reviews led by departments with
on the UK’s international priorities.1 Cabinet Office oversight and challenge.
3. The review team did not undertake an audit of 8. The aim of all such reviews is to provide
British Council finances, nor detailed financial a robust challenge to, and assurance on,
or economic modelling of future options. the continuing need for the organisation
in question. If ministers subsequently
2014 Triennial Review decide that significant change of status
4. A Triennial Review of the British Council or organisational structure is needed,
was published in July 2014, under separate work will be commissioned to
the 2010-2015 public bodies reform plan and implement that change.
programme.2 It concluded with a list of 72 9. The 2019 tailored review of the British
recommendations for the British Council. Council aims to assess in particular:
5. The British Council provided three updates >> The British Council’s capacity for
to the FCO on implementation of the 2014 delivering more effectively and efficiently,
Triennial Review. These were delivered including identifying the potential for
alongside a report in December 2014 efficiency savings, and where appropriate,
detailing progress in implementing the its ability to contribute to economic
recommendations from the Triennial Review. growth. It includes an assessment of the
Another report was produced in December performance of the organisation or—where
2015, with a one page update in December appropriate—assurance that processes are
2016. The December 2016 update stated in place for making such assessments;
that all relevant recommendations had either
>> The control and governance arrangements
been implemented or were ongoing, for
in place to ensure that the British Council
example the separation of the British Council’s
and the FCO are aligned with the Cabinet
commercial and cultural relations activities.
Office’s code of good practice on
6. A summary of the implementation of the partnerships with arm’s length bodies.3
recommendations is at annex A (page 68). It provides an assessment of whether
these arrangements are optimal for
the British Council’s effectiveness.
1 https://www.gov.uk/government/collections/global-britain-delivering-on-our-international-ambition
2 https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/
file/335494/140722_PDF_of_British_Council_Triennial_Review_with_Annexes_FINAL.pdf
3 Arm’s-length bodies is a commonly used term covering a wide range of public bodies, including non-ministerial
departments, non-departmental public bodies, executive agencies and other bodies, such as public corporations.
British Council Tailored Review 2019 910. The full scope of the review is set out Tunisia, Brazil, and Zimbabwe. The team
in the terms of reference published also looked at other countries’ cultural
on the gov.uk website.4 relations organisations as appropriate; a short
comparative analysis can be found in annex E.
Review approach
16. The review team engaged with around 700
11. The review was carried out by a team individuals and organisations in the UK and
of experienced Diplomatic Service during country visits abroad, through structured
officers, independent from the FCO team interviews, online surveys and working groups.
responsible for working with the British
Council. It was supported by expertise British Council response to the Review
from across government, including
17. The Review team is grateful to the British
the overseas network, as well as from
Council for its proactive engagement and
academia and the private sector.
support for the Review. It is to the British
12. The review was supported by a challenge Council’s credit that it has responded swiftly
panel chaired by the FCO Non-Executive and helpfully to requests for information or
Director, Miranda Curtis. The panel’s purpose clarification. A significant amount of this
was to test the assumptions and conclusions evidence has also been published on their open
of the review, in line with Cabinet Office website https://tailored-review.britishcouncil.
guidance. Further details of the panel org. When the British Council has not had
and its composition are at annex B. the information readily available, it has either
endeavoured to produce it or provided suitable
13. The review team considered written evidence
alternatives. Where the Review team has
submitted by the British Council itself, as
identified potential issues, for example around
well as from trade unions and the European
robust theories of change, the British Council
Works Council. It also engaged with a broad
has responded by working to develop them.
range of external stakeholders, including UK
As a result, the Review has largely been a
Government departments and the devolved
collaborative process: this report is the result
administrations, businesses and civil society.
of that partnership and is stronger for it.
14. Stakeholder engagement took place from
18. The Review team would like to thank
September to November 2018. The Review
in particular Christopher Wade and
team carried out a number of interviews and
Eugenia Asare of the British Council for
workshops, including with British Council and
their continued help and support.
FCO staff. The team took part in two British
Council all-staff webinars. The Review team
also ran two bespoke online surveys: one of
Ambassadors and Heads of Missions in the
FCO’s Global Network, and a wider survey
of the British Council’s partners, customers
and beneficiaries. The results of these surveys
can be found in the annexes C and D.
15. The Review team carried out visits to British
Council offices overseas to assess specific
British Council programmes in context and
their inter-relationship with other British
Government activities. The British Council
offices visited were China, India, Lebanon,
Ukraine and Germany. In addition, the team
looked in detail at British Council work in
4 https://www.gov.uk/government/publications/tailored-review-of-the-british-council-terms-
of-reference/tailored-review-of-the-british-council-terms-of-reference
10 British Council Tailored Review 2019Section 1—Purpose
Chapter 1: Overview of Soft power
the British Council “We will further enhance our position as the world’s
19. The Foreign Office created the British leading soft power promoting our values and interests
Committee for Relations with Other globally with our world-class Diplomatic Service,
Countries in 1934. In 1936 it was commitment to overseas development, and institutions
such as the BBC World Service and the British Council”—
renamed the British Council.
Strategic Defence and Security Review, 2015.
20. Its first overseas offices opened in 1938,
“We will strengthen our overseas network so that we
in Bucharest, Cairo, Lisbon and Warsaw.
can reinvest in our relationships around the world… and
It was the first organisation in the world use our soft power to project our values and advance UK
dedicated to promoting cultural relations interests.”—National Security Capability Review, 2018.
internationally. Since 1940 it has been
There is no agreed definition of what constitutes soft
operating under Royal Charter.
power. However, it is generally interpreted as “the ability
21. The British Council was formed at a time of to get what you want through attraction rather than
significant global instability. It was part of the coercion or payments. It arises from the attractiveness of a
UK Government’s efforts to mitigate the impact country’s culture, political ideals, and policies.”5
of these threats and to promote British values. Soft power is intrinsically strategic: it is the fruit of long-
22. Today, the British Council continues to be the term investment and commitment. The British Academy’s
UK’s international organisation for cultural report on soft power, The Art of Attraction (2013),
recommended states should provide resources for the
relations and educational opportunities. It
development and maintenance of such long term assets,
has operations both overseas and within
but refrain from direct interference and keep soft power
the UK. It contributes to the extension
institutions at arm’s length.6
of UK soft power (see box below).
The UK is generally regarded as a leading soft power.
23. The British Council aims to create connections In 2018 the Portland Soft Power 30 Index placed the
and build trust between the people of the UK in the top spot, noting its wide range of soft power
UK and other countries, project British assets, including the contribution of the British Council.7
values abroad, and contribute to UK security, For the past 6 years, London has been ranked highest in
prosperity and influence objectives. the Global Power Cities Index.8 The market is, though,
becoming increasingly competitive and crowded as other
24. The British Council is classified as a non-
countries develop their own soft power tools, notably
departmental public body and a public China and Russia (see annex E comparative analysis).
corporation, with the FCO as its sponsor
department. It is also a charity, under the These indices recognise the UK’s distinct soft power
assets, but they do not assess how effectively they are
Charities Act 2011, under Royal Charter. The
used. Nor do they provide an assessment of the return on
British Council status is examined in more
investment. Studies commissioned by the British Council
detail in Chapter 6, Status and Sustainability.
have, however, reflected on the impact of soft power, for
example through correlation to attracting international
students, tourists and foreign direct investment, the
role of soft power in contemporary diplomacy, and the
contribution of arts.
5 Joseph Nye, Soft Power: The Means To Success In World Politics
6 British Academy, The Art of Attraction; Soft Power and the UK’s Role in the World
7 “The British Council in particular has been instrumental in spreading British influence and cultivating soft
power, through cultural and educational engagement.”—Portland Soft Power 30 Index, 2018
8 http://mori-m-foundation.or.jp/english/ius2/gpci2/index.shtml
British Council Tailored Review 2019 11The British Government is in the process of drawing up a 75% of countries in these regions are also grouped into
soft power strategy, which will help set some of the British smaller clusters, to enable localised sharing of expertise
Council’s work into that wider context. and skills and to maximise efficiencies through shared
offices and services. This clustering also incorporates
countries where the British Council does not have
UK network permanent offices, and so allows for impact to be felt in
25. In the UK, the British Council employs countries where the British Council does not maintain a
presence. There are over 20 countries where the British
around 1,150 permanent staff at its
Council is active but does not have an office.
headquarters in London and offices in
Manchester, Belfast, Cardiff and Edinburgh. An example of effective working within a cluster is the
Teaching Centre Network, which encompasses around
26. The UK network includes Strategic Business 50 countries. Through this network the British Council
Units covering Arts, Education & Society, seeks to share skills and knowledge between the clusters.
and English & Exams. Corporate functions Teaching Centres are accredited on a variety of criteria,
include finance and corporate services, and cluster work enables a consistent approach to
human resources, strategy and performance, accrediting. Knowledge sharing amongst the network is
internal audit, digital, and marketing and also encouraged so that best practise can be shared and
communications. These are all global functions. improved amongst the cluster members.
Further details of its network can be found in the British
Overseas network Council’s annual report and accounts9, as well as its
27. The British Council operates in 116 corporate plan for 2018-202010.
countries. It employs more than 12,000
staff. Its stated annual turnover in 2017/18
was £1,169 million. The largest share Chapter 2: Objectives
of this came from its exams business,
followed by contract management and Strategic objectives
then English language teaching. 30. The British Council’s broad goals and
28. In 2017/18, the British Council claims to have objectives are set out in its Royal Charter.11
reached over 758 million people in over 116 Originally granted in September 1940, the
countries. This included 14 million face-to-face Royal Charter was most recently amended
participants in British Council programmes, 42 in 2011. Its stated objects are to:
million users of British Council digital social >> promote cultural relationships and the
media and learning products, and 19 million understanding of different cultures
visitors to British Council-supported exhibitions. between people and peoples of the
29. Further detail can be found in United Kingdom and other countries;
Chapter 3, Effectiveness. >> promote a wider knowledge
of the United Kingdom;
The British Council’s Global Network >> develop a wider knowledge
The British Council’s global network is made up of offices of the English language;
in 116 countries, grouped into eight different regions.
>> encourage cultural, scientific, technological
These regions are the Americas, Middle East and North
and other educational cooperation between
Africa, Sub-Saharan Africa, East Asia, South Asia, Wider
Europe, EU Europe and the UK. Each overseas region also the United Kingdom and other countries; or
has a regional hub, which has responsibility for improving >> otherwise promote the
the efficiency of communication and the quality of advancement of education.
programmes amongst the overseas network.
9 https://www.britishcouncil.org/sites/default/files/2017-18-annual-report.pdf
10 https://www.britishcouncil.org/sites/default/files/2018-20-corporate-plan.pdf
11 https://www.britishcouncil.org/sites/default/files/royalcharter.pdf
12 British Council Tailored Review 201931. The British Council prioritises within these broad above. Not all criteria within a national security
areas, but does not devote equal weight to framework is applicable to British Council work.
them all. For example, scientific cooperation
37. On a practical level, these three objectives
generally has a lower priority than cultural
are presented as the framework through
relationships. In prioritising its work, it is
which all British Council work should
guided “by the UK’s long term international
be seen and how the British Council
aims”, as stated in the FCO/British Council
contributes to UK Government objectives.
agreed Management Statement. The British
Council aims to be strategically aligned with, 38. However, the British Council does not
but operationally independent from, the FCO. set out detailed outcomes that it will
deliver under its stated objectives on
32. There is no single UK Government document
influence, prosperity, and security.
setting out detailed objectives for nor
expectations of the British Council. The Strategic framework
FCO’s published single departmental plan
does not include a specific objective for, 39. Underneath the three strategic objectives,
or reference to, the British Council. there are a series of supplementary
objectives and groupings of the British
33. The British Council draws from UK Council’s work and priorities. These
Government’s publicly available objectives are set out in Figure 1 (page 14).
in its strategic planning. The British
Council aligned its 2018-20 corporate plan 40. It is not clear however, how these groups
objectives with the 2015 National Security of priorities and thematic areas relate
Strategy (NSS) objectives,12 which are: to one another or fit together.
>> Protect our people 41. The British Council’s strategic and business
planning process is complex. Strategic Business
>> Project our global influence Units compile strategies for each of the
>> Promote our prosperity results areas (such as arts or education). In
addition, there are eight regional strategies
34. The FCO’s single departmental plan
and annual regional plans (covering seven
and priority outcomes are also
international regions and the UK), as well as a
structured around these objectives.
country strategy and annual country plan for
35. The British Council’s corporate plan is agreed each country operation. There are additional
with the FCO annually (see Chapter 4, Working strategies covering specific thematic areas,
with UK Government and the devolved such as cities. The inter-relationship between
administrations). It is a public document which these strategies and plans is not always clear.
sets out in broad terms the British Council’s
42. The British Council’s monitoring and evaluation
objectives and how it will achieve them. The
(M&E) framework only relates to two sets
current corporate plan 2018-20 states that the
of objectives—the results areas and the
British Council’s strategic objectives are to:
corporate outcomes. The British Council does
>>Contribute to the UK’s international not set out the specific goals or targets that
influence and attraction. it aims to achieve in its strategic objectives
or geographical priorities. Country plans also
>>Contribute to UK and global prosperity,
tend to focus more on results areas rather than
growth and development.
stated strategic or geographic priorities. The
>>Make a lasting difference to the security British Council’s M&E framework is therefore
of the UK and to stability worldwide. ineffective at assessing how outcomes at, for
36. These objectives are broadly consistent with, example, country-level contribute to higher
though not identical to, the NSS objectives
12 https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_
data/file/478933/52309_Cm_9161_NSS_SD_Review_web_only.pdf
British Council Tailored Review 2019 13Figure 1. British Council Strategic Framework
STRATEGIC OBJECTIVES
Contribute to the UK’s international Contribute to the UK and global Make a lasting difference to
influence and attraction. prosperity, growth and development. the security of the UK and
to stability worldwide.
CORPORATE OUTCOMES
Create opportunities Build connections Engender trust
Lives are transformed through Stronger cultural relationships between Increased trust and understanding
English, education, skills, the UK and countries worldwide. between people in the UK
qualifications, arts and culture. and people worldwide.
GEOGRAPHIC PRIORITIES
Creating international opportunities and Responding to the refugee crisis in Supporting stability and security
connections for young people in the UK. Syria, Iraq and neighbouring countries. in priority countries in the Middle
East, Africa and South Asia.
Supporting the UK’s influence and Building education and cultural Strengthening long-term
prosperity in the world through partnerships with countries connections and relationships
stronger relationships with India. China of the European Union. with the next generation in Russia
and other high-growth developing and neighbouring countries.
and developed economies.
RESULTS AREAS
Young people Higher education Arts Civil society and justice
Young people have the skills, and science People’s lives are enriched Citizens interact with states
resilience and networks to People in tertiary education by arts and culture and in ways which encourage
find pathways to better lives. and research institutes cultural heritage is valued. collaboration and create
get access, partnerships, stable societies that work
training and collaboration better for people.
which contribute to more
prosperous, sustainable
and equitable societies.
English Testing and assessment Women and girls Skills and enterprise
Good English teaching helps Students and professionals Women and girls participate People have the skills
people to study and work get internationally recognised in, and benefit from, decision to be employable and
and to develop careers, UK qualifications for making and social change. to build inclusive and
confidence and networks. study, life and work. creative economies
which support stable and
prosperous societies.
or strategic-level impact. These issues are twenty pages long, making it difficult to
addressed further in Chapter 3, Effectiveness. identify priorities. In some cases, objectives
were also listed without reference to specific
Business planning targets or baselines from previous years.
43. The Review looked at a range of country 44. Country plans would benefit from
strategies and plans. They were found to be simplification, including a one-page summary
of varying quality. Inclusion of background dashboard showing progress towards
data and analysis of the country context key targets, deadlines and risk ratings.
meant that these were often more than
14 British Council Tailored Review 201945. A newly introduced requirement for country Statement, more detailed strategic objectives
plans to summarise explicitly the benefits for the British Council that include indicators
for the UK of programme or thematic and timelines for measurement. All British
activity is a positive step. However, the Council work (including monitoring and
quality of this evidence is variable, with evaluation) should flow from this.
benefits to the host country often better
defined than the benefit to the UK. 50. Once agreed, there should be a requirement
to link all British Council business planning,
46. There is a lack of clarity around who is
activity and monitoring and evaluation to
accountable at a strategic level for each
this new single set of objectives. This would
set of priorities or objectives. This lack
provide greater clarity on the British Council’s
of ownership means there is no critical
strategic direction, and ensure relevance and
analysis of the positive and negative results
consistency of all staff and programme activity.
that come from pursuing objectives.
Senior ownership of each objective would also
47. The lack of accountability also risks a help drive delivery and boost accountability.
fractured approach to objective setting.
This means programmes become a Recommendation 3: The British Council
series of disparate activities, rather than should simplify and streamline its strategic
a coherent project to achieve a specific framework and business planning, making
desired outcome. Senior accountability and clear at all stages the links between activities,
oversight would better support delivery outputs and overall strategic objectives.
of outcomes and mitigation of risks.
48. The review found that both the FCO and the Recommendation 4: Senior reporting officers
British Council would benefit from closer should be appointed for each strategic objective.
alignment of objectives, and that this would
be best achieved by incorporating a specific FCO alignment
objective relating to the British Council within
the FCO’s published single departmental 51. Although the British Council’s work crosses
plan. This new overarching objective should several of the FCO’s priority outcomes,
be drawn up in consultation with the British the FCO itself has no single outcome
Council. It should replace, or build on, the clearly related to the British Council.
current influence, prosperity and security 52. The British Council’s geographic objectives
objectives (see Chapter 3, Effectiveness). generally correlate with the FCO’s priority
areas, for example the deepening of bilateral
Recommendation 1: The FCO’s single links with other European countries, a focus
departmental plan should include a on key markets such as India and China, a
high level British Council objective. more resilient European neighbourhood, and
responding to the refugee crisis in Syria.
49. A set of detailed strategic objectives should
be agreed in parallel with the FCO. These 53. The British Council has also sought to respond
should have supplementary and measurable to newer FCO and cross-governmental
key performance indicators (KPIs) and priorities, for example introducing a clearer
timelines against which to measure progress focus on women and girls and ensuring its
and impact. The detail of this does not work contributed to the campaign for girls’
necessarily need to sit in a public document. education launched by a previous Foreign
The British Council’s current geographical Secretary. The British Council are part of
objectives may provide a more appropriate the cross-Whitehall steering groups on
framework for revised strategic objectives. women and girls, and girls’ education.
54. The British Council was also involved in recent
Recommendation 2: The British Council and plans to expand and deepen UK Government
FCO should agree, in line with the Management engagement in Africa, as announced during
British Council Tailored Review 2019 15the Prime Minister’s trip to South Africa, 59. Feedback from other stakeholders indicated that
Nigeria and Kenya in August 2018. To help the in-country business planning was not aligned
UK expand its influence beyond Anglophone with a central British Council strategy and
Africa, the British Council is considering how therefore was inconsistent between countries.
best to provide English language training Feedback also noted that there was little
in francophone countries by running pilots opportunity for UK Government stakeholders
in three West African countries. Given the to comment on British Council country plans.
demand for English language, and wider UK
60. Joined up strategic planning will have
Government ambitions to work with African
more prominence in the context of the
countries to improve youth education, there
Foreign Secretary’s ambitions to leverage
is a clear role here for the British Council.
the UK’s unique combination of soft
55. There are inevitably some gaps in relation power institutions.14 Recommendation
to stated FCO priorities. The British Council 13 (Chapter 4) suggest ways to
does not, for example, have a specific focus improve collaboration in country.
on building links with the Commonwealth.
From 2000 to 2010 the British Council Recommendation 5: All FCO diplomatic
priorities included a focus on addressing posts should incorporate relevant British
climate change, but this ended, in part Council objectives in their annual integrated
because it was not aligned closely enough country business plans, and use them to drive
with the organisation’s charitable objectives. alignment and complementarity of work.
56. At a country level, a majority of Heads of
Mission felt they generally understood Wider UK Government alignment
the British Council’s global priorities, 61. The British Council’s 2018-20 corporate plan
as well as the British Council’s plans in states that it was developed in consultation
their country (Figure 2) (page 17). with UK Government departments and
57. Country case studies suggested a good level devolved administrations, as well as UK sector
of alignment between overseas missions partners and with stakeholders overseas.
and British Council country office priorities. 62. In practice the British Council discusses its
In Germany, for example, the British Council plan and objectives in a series of bilateral
is assessed as being well aligned with the conversations with UK Government
FCO’s priority outcome to bolster bilateral departments and devolved administrations,
relationships and peer to peer links with rather than as a consolidated group.
partners across Europe. In India, China At best, this risks missing synergies or
and Ukraine, the British Council’s priorities opportunities. At worst, it creates a risk
in promoting UK influence and attraction of duplication and wasted effort.
are well aligned with those of the FCO.
63. To demonstrate alignment the British
58. However, despite a recommendation in the Council produces, as an annex to its
2014 Triennial Review, 21% of Heads of corporate plan, a summary showing how
Mission stated that British Council objectives it believes its work contributes to relevant
were still not included in their ‘One HMG’ departmental and devolved administrations’
country business plans.13 12% of Heads of objectives. This is not, however,
Mission said they had never been consulted formally agreed across government.
on British Council country office planning.
64. Representatives from government
departments confirmed that the British
13 The One HMG Overseas agenda aims to remove barriers to joint working, so that
all staff working for the UK Government overseas can deliver the UK’s objectives more
effectively and efficiently.
14 https://www.gov.uk/government/speeches/an-invisible-chain-speech-by-the-foreign-secretary
16 British Council Tailored Review 2019Council’s framework generally aligns well 66. However, DfE saw scope for closer alignment
with their international objectives: between the British Council’s work and UK
international education priorities and domestic
>> The Department for International
education policies. On occasion the policy
Development (DFID) stated that the
advice offered by the British Council was not
British Council’s work on education
fully aligned with the latest UK Government
and with young people can make a
thinking and approaches. There was no
strong contribution to DFID’s efforts
substantive mechanism through which DfE
to tackle extreme poverty and to
could set out their priorities when it came to
promote global prosperity.
international education. The British Council
>> The Department for Culture, Media and had tended to consult with them late in the
Sport (DCMS) was positive about the British process of setting their priorities each year.
Council’s contribution to cultural relations.
Years of Culture and Cultural Protection Recommendation 6: The British Council
Fund programmes were highlighted as should ensure its work is closely aligned with
areas where the British Council made the UK Government’s priorities, and that the
significant contribution to DCMS priorities. British Council engages with UK Government
>> The Department for Education (DfE) was departments and the devolved administrations
clear that the British Council was a key when agreeing its priorities for 2019/20 so that
actor for delivering the UK’s international stakeholders can contribute in a meaningful way.
education objectives, and in a sense acted
as the eyes and ears for DfE internationally. Alignment with the devolved administrations
DfE praised the relationships that the British
67. Representatives from the devolved
Council had built with foreign Ministries of
administrations praised the British Council’s
Education which had underpinned many
specific focus on “representing and serving
agreements that the UK had signed.
all parts of the UK as well as the particular
>> DIT flagged the key role the British Council interests of England, Northern Ireland, Scotland
played promoting the UK education and and Wales”, as per its UK strategy. While
English language sectors internationally. there are no formal or strategic agreements
65. DFID, DfE and DIT all supported the British between the British Council and the devolved
Council’s existing focus on facilitating administrations, the British Council’s offices
partnerships between UK and international in Northern Ireland, Scotland and Wales
education institutions, promoting the UK’s produce annual country plans, which seek
education sectors, including as a study to reflect the international priorities of each
destination, offering education advice to Administration, especially in the context of the
foreign governments and offering international devolution of education and culture policies.
experience to UK students and young people. Alignment of activity is further supported by
Figure 2: Heads of Mission Survey
To what extent do you agree or disagree To what extent do you agree or disagree with
with the following statement: "I understand the following statement: “I understand British
British Council strategic priorities globally" Council plans or priorities in my country”
STRONGLY
Overall AGREE AGREE Overall AGREE STRONGLY AGREE
60% 13% 42% 30%
Where BC has presence Where BC has presence
59% 16% 43% 38%
British Council Tailored Review 2019 17each of the British Council’s Scotland, Wales Independent external evaluation concluded that
and Northern Ireland Advisory Committees. Connecting Classrooms “delivered positive results across
the vast majority of logframe impact, outcome and
68. Examples of British Council activity that output indicators, meeting and in many cases exceeding
complemented devolved administrations’ milestone targets”. DFID awarded the programme “A+”
objectives included in primary and and “A” ratings (‘exceeding/meeting expectations’).
secondary education, where the Connecting
Participants were generally positive about the impact of
Classrooms through Global Learning (see
the programme, contributing to efforts to internationalise
text box below) and Erasmus+ programmes young people and create global citizens. It was also
were strongly praised for increasing the regarded as an effective gateway for schools to make
international outlook and skills development international connections before involvement in other
of teachers and young people. education programmes, such as Erasmus+.
Feedback from delivery partners and government
Creating international opportunities and stakeholders indicated that Connecting Classrooms
connections for young people in the UK increased the UK’s reputation and contribution to
Connecting Classrooms through Global Learning | UK development education in the 40 participating countries
and 40 countries and improved the consistency and reach of development
education in UK schools, including in less culturally diverse
Connecting Classrooms through Global Learning is a
regions.
global schools programme to help young people develop
the knowledge, skills and values to live and work in a
globalised 21st century economy. It does this by training 69. In Scotland, the British Council’s work on the
teachers and school leaders to use new interactive 2018 Year of Young People in Scotland and
approaches and techniques in their teaching. The British the 2018 Edinburgh International Culture
Council and DFID each contributed £17 million to the Summit demonstrated a close alignment
2015-2018 programme. It is managed and delivered by with the Scottish Government’s priorities
the British Council in the UK and over 40 other countries. and demonstrated effectively the British
The 2018-21 Connecting Classrooms programme has been Council’s complementary approach.
integrated into DFID’s Global Learning Programme.
70. In Northern Ireland, stakeholders from the
Connecting Classrooms covers four areas: dialogue
Department for Economy (covering higher
with policymakers on education policy development;
education) identified the British Council’s
professional development for teachers and school leaders;
enabling school partnerships; and an accreditation scheme Study USA and The International Association
for schools (International School Award). It contributes to for the Exchange of Students for Technical
the British Council’s priority area: ‘Young people have the Experience, as successful programmes
skills, resilience and networks to find pathways to better managed in Belfast that contributed to the
lives’. long-term prosperity of Northern Ireland.
From 2015-18 Connecting Classrooms worked with 1,100 71. The Global Wales programme was highlighted
policy makers, trained over 22,000 school leaders and as an example of where the British Council’s
56,000 teachers, and over 10 million young people learned partnership with the Welsh Government
new knowledge, skills and values in classrooms. In the UK, helped to successfully promote Wales’
1,630 schools took part; 3,500 teachers completed skills higher education sector internationally.
training and 135 school leaders were trained.
Connecting Classrooms contributed to DFID and Views from non-government actors
DfE priorities. It is closely aligned with Devolved 72. A wide range of stakeholders that had
Administrations’ objectives around internationalising young
close interaction with the British Council
people and global citizenship, in particular in the context
were interviewed and surveyed.
of the UK’s exit from the EU.
73. Evidence suggests that the British Council’s
UK stakeholders generally had a good
understanding of its broad purpose and
sectoral activities. Interviews with key
stakeholders in the arts, education, exams
18 British Council Tailored Review 2019External Stakeholders Survey - To what extent do you agree or disagree with the
following statement: “I understand British Council priorities in my sector”
Arts AGREE STRONGLY AGREE Young People AGREE STRONGLY AGREE
41% 48% 48% 42%
English Civil Society & Justice
39% 45% 41% 48%
Higher Education & Science Testing & Assessment
51% 44% 47% 40%
Skills & Enterprise Women & Girls
56% 44% 44% 44%
and society programme areas demonstrated a
widespread understanding of what the British
Council’s purpose was. Across all stakeholder
groups, a significant majority of those who
responded to the external stakeholders’
survey (annex D) said they understood
British Council priorities in their sector.
74. A number of UK stakeholders, however,
indicated that clarifying and simplifying the
British Council’s strategic framework would
be welcome. This feedback was strongest
amongst stakeholders in the arts sector.
British Council Tailored Review 2019 19Section 2—Delivery
Chapter 3: Effectiveness shared performance reports compiled for the
Board of Trustees and a 2018/19 strategic
Review approach targets summary. These covered some of
75. The British Council’s M&E framework aims the REF but did not set out a comprehensive
to record reach, engagement, opportunities set of British Council key performance
and impact against the eight thematic results indicators’ (KPIs) related to effectiveness.
areas, as well as organisational performance 81. The British Council has plans to develop
(see Figure 4 (page 22)). There is no explicit M&E capacity across the organisation.
M&E link to, or separate reporting on, the New regional and thematic M&E advisors
British Council’s impact against the three should help professionalise and embed the
strategic objectives (influence, prosperity, British Council’s approach, for example
security), or the six geographic objectives, by tailoring approaches to programmes
agreed with UK Government in the corporate and investing in external evaluation.
plan (see “Chapter 2: Objectives”). This
82. The British Council’s investment in
made an evaluation of the British Council’s
strengthening its M&E capacity and
effectiveness and contribution to UK
expertise through the REF is a positive
Government priorities challenging.
development. It reflects an aspiration to
76. The Review adopted a twin track approach meet, or exceed, current best practice.
of looking both at the British Council’s own The British Council should review two key
evidence, processes and metrics for assessing weaknesses in the REF’s methodology.
its impact (Part I); as well as gathering separate
83. As noted above, the REF does not link back
evidence of the British Council’s contribution
to either set of the British Council’s strategic
to the three strategic objectives (Part II).
objectives (influence, prosperity, security, or
the six geographical priorities). The British
PART I: British Council framework Council has shared additional detail with
the Review on how the impact statements
The British Council’s Monitoring
map out against influence, prosperity,
and Evaluation Policy
security objectives (see Part II). Preparing
77. In response to feedback, the British Council this alignment retroactively limits its value.
introduced an ambitious global monitoring The REF should be aligned with the British
and evaluation policy and a new results Council’s reinforced strategic priorities
and evidence framework (REF). This is (Recommendation 2) as a matter of priority.
based on a model used by DFID.
84. Additionally, as recognised in a recent British
78. Introduced in 2017, the REF seeks to Council stocktake, there are gaps in the
demonstrate the impact of the British Council’s governance of the REF and a lack of senior
cultural relations work by defining categories leadership and ownership. While there appear
for the collection and presentation of evidence. to be leads for each of the results areas, senior
It is structured around four ‘levels’ of evidence, leaders such as thematic or regional directors
each with thematic sub-categories (the eight are not named as being responsible for
results areas in the case of REF Levels 2 and delivery against relevant objectives. Providing
3) and agreed indicators (a sample of which senior reporting officers (Recommendation
are reproduced in Figure 4 (page 22)). 4) with relevant REF data would strengthen
79. Organisational performance indicators are oversight and accountability for specific
covered in “Chapter 2: Objectives”. outcomes and ultimately improve delivery.
80. The Review has not seen a complete REF 85. Some external stakeholders who worked
dashboard. Instead, the British Council more closely with the British Council had a
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