House of Lords (Hereditary Peers) (Abolition of By-Elections) Bill [HL]
Monday 26th June 2017
(7 years, 5 months ago)
Lords ChamberRead Full debate House of Lords (Hereditary Peers) (Abolition of By-Elections) Bill [HL] 2017-19 Read Hansard Text
House of Lords (Hereditary Peers) (Abolition of By-Elections) Bill [HL]
Friday 8th September 2017
(7 years, 3 months ago)
Lords ChamberRead Full debate House of Lords (Hereditary Peers) (Abolition of By-Elections) Bill [HL] 2017-19 Read Hansard Text Read Debate Ministerial Extracts
Lord Grocott (Lab)
My Lords, just a year ago I introduced a Bill with exactly the same objective as the one I am proposing today. Regrettably, despite very strong support from all parts of the House, the Bill was blocked in Committee by a small number of Peers. My motive in reintroducing the Bill is unchanged: the by-election system, which provides for the continuation—effectively in perpetuity—of a block of 90 hereditary Peers is absurd and indefensible. In the 12 months since the last Bill, there have been significant developments that make the case for scrapping the by-elections even more compelling.
Let us remind ourselves briefly how the system works. There are 90 elected places. If a vacancy occurs among the 15 hereditary Peers who were originally officeholders—that is, Deputy Speakers—the electorate consist of all 803 Members of the House. The remaining 75 hereditaries are distributed among three party groups and the Cross-Benchers. The electorate for each by-election then consist of the hereditary Peers who are members of the group where the vacancy has arisen. As a reminder, the numbers are as follows: for a Conservative vacancy, 48 hereditary Peers can vote; for a Cross-Bencher, it is 30; for a Lib Dem, three; and for Labour, three.
Try explaining that nonsense to members of the public as a mechanism for recruiting people to serve in Parliament; I guarantee their jaws will hit the floor. It makes the d’Hondt system look simple, and given that the system is so manifestly absurd, is it any wonder that it results in the most absurd by-elections? I cannot resist repeating the example I gave last year of a Lib Dem by-election following the death of Eric Lubbock—the first person, I might add, who raised the issue of trying to scrap these by-elections. It was held in April 2016, when the number of candidates was 11 and the electorate was three. By way of comparison, before the Great Reform Act 1832, even Old Sarum had an electorate of seven. In comparison with the Lib Dem by-election, that is a metropolis.
I can hear Members asking: “But your Bill failed last year, so why waste parliamentary time again?”.
Lord Grocott
Well, I will give the answer—and I hope that Members will give their answers during their speeches as well. Even in the 12 months since the last Bill, there have been a number of developments, all of which make the case for ending the by-elections stronger, and the case for retaining them inexorably weaker—so much so that any neutral observer would surely conclude that it is not so much a matter of whether the by-elections will cease, but when.
The debates on the Bill last year, and the discussions that surrounded them, have shown beyond doubt that there is overwhelming support in this House for the reform that I am proposing. Support has come from Labour, Liberal Democrats, Conservatives and Cross-Benchers—including a very large number of hereditaries themselves, who have come to me and, understandably, find it difficult to speak on this subject. I would love to know what the actual numbers were among the hereditaries of those in favour and those against the change. When the opinion of the House was tested in Committee—of course, on a Friday, when Divisions are rare—the first vote on the principle of the Bill resulted in a defeat for its opponents by a majority of 93. There can be no reasonable doubt that the number of Members of this House who are resolutely opposed to this Bill is minuscule.
The weakness of the Bill’s opponents could not be better illustrated than by the tactics they employed in Committee. In the three months last year between Second Reading and Committee stage, just six amendments were tabled. Then, lo and behold, on the day before the debate, inspiration and creativity overwhelmed two Members of this House: the noble Lord, Lord Trefgarne, and the noble Earl, Lord Caithness, tabled 50 amendments overnight. My Lords, we all know what that is about: a tiny number of Members knowing they were in a hopeless minority in the House and knowing that they could not win by votes so they had better win by tricks. Fifty overnight amendments—if you are going to wreck a Bill, do it a bit more subtly.
This time, my appeal to anyone who is thinking of trying these tactics is to please think again. They do neither noble Lords’ nor the House’s reputation any good. They should win by the arguments and in the Division Lobbies, not by tricks. It is the opinion of the House that should prevail, not the opinion of one or two of its Members.
I also say to anyone who is thinking of wrecking the Bill this time to please think of the adverse publicity for our House that that will attract. I will give three examples from the media since then:
“Hereditary Peers Set To Ambush Bill Aimed At Scrapping Their ‘Laughable' By-Elections”.
Another headline is:
“‘An embarrassment to our politics!’ Fury as Lords prepare to elect new hereditary peer”.
Finally, we have:
“Tory aristocrat joins Parliament for life by winning 143 votes in a ‘Blackadder’ by-election”.
I am the last person on the planet to argue that we should change a good policy because of some bad newspaper headlines, but it is noticeable that there is absolutely nobody, apart from a handful of people in this House, who is prepared to defend these by-elections. The argument for their continuation is friendless, and surely that is because simply there are no such good arguments.
I challenge anyone today who is thinking of opposing my Bill to not give us a history lesson. Instead, come clean and explain to us, in 2017, what added value the by-elections provide to our parliamentary system. Tell us precisely why we continue to replace the 90 hereditary Peers. Tell us what the distinctive characteristics of the 198 people on the Register of Hereditary Peers are that mean that we need to provide them with a reserved place in our legislature? Once elected, what is special about their parliamentary talents that distinguishes them from other Members of the House? To make it personal, what is the justification for the heir of a hereditary Peer in this House having a one in 200 chance of becoming a member of the legislature while for everyone else in the country, that chance is something like one in 90,000? Tell us, here and now, 18 years after the House of Lords Act 1999, what it is about these by-elections that enhances and enriches our parliamentary democracy. If they cannot answer these questions, surely it is time to call it a day and stop playing King Canute.
There have been significant developments in the last 12 months that have strengthened the case for my Bill. Among them has been the evidence provided by yet more by-elections. For those of us in favour of scrapping them, the by-elections are the gift that keeps on giving. There have been two such elections this year. The first, on 21 March, was for a hereditary Peer to be elected by the whole House. The second, on 18 July, was for a Cross-Bench Peer, when only hereditary Cross-Benchers could vote. It is the first of these two by-elections that provides the richest vein for satire. This, remember, was an election for a place in our Parliament—or rather, a parliamentary by-election. The figure for the electorate was 803 and the number of votes cast was 436, meaning that the turnout was 43%. By way of comparison, it is worth noting that in the general election in June, the lowest turnout in all 650 constituencies was Glasgow North East, with 53%. The propensity to vote in a House of Lords by-election, where voters need only walk down the corridor from their offices and put a ballot paper in a box in the Committee room, is 10% lower than the parliamentary constituency with the lowest turnout. That, to me, provides pretty clear evidence that the majority of Members of this House feel no great attachment to the practice of re-electing hereditary Peers.
Then there was the little matter of the ballot itself. No fewer than 27 candidates put themselves forward, 19 of whom got fewer than 10 votes. Under the alternative vote system there were 25—yes, 25—rounds of balloting before the winner was declared. What is more, the same person led in all 25 ballots, so if the voting system had been first past the post, the same result would have been achieved with a lot less trouble. I just thought I would point that out. There was a 43% turnout, 27 candidates, 25 ballots, and only hereditaries could stand. In 1999 when the original Act was passed, surely no one could have intended that 18 years later we would still have that system of recruiting people to our Parliament, and with no prospect of an end in sight.
The other matter is the very important Motion that this House passed last year, moving that,
“this House believes that its size should be reduced, and methods should be explored by which this could be achieved.”
As a result of that debate, the Lord Speaker established a committee under the noble Lord, Lord Burns, to consider the issue. The committee is due to report in October. What has that to do, you may well ask, with my Bill to end the by-elections? The answer is that if we are to reduce the size of the Lords to around 600 Members so that it is smaller than the Commons, surely we will have to amend the legislation that preserves in aspic 90 places for hereditary Peers. If we reduce the size of this House without changing the law on the hereditary bloc, the proportion of hereditaries would rise from 11% to 15%. For us to embark on an important modernising measure to reduce our size with the result of significantly increasing the proportion of hereditaries really would be a case of Alice in Wonderland.
I should point out that we are not the only ones looking for ways to reduce our size and of the way in which that might involve the hereditaries. Since I introduced my Bill last year, the size of the Lords and the issue of the hereditary Peers have been discussed several times in the Commons, in a Select Committee inquiry, a Private Members’ Bill, a Westminster Hall debate and a 10-minute rule Bill. Most recently, on Wednesday this week, the Commons gave the First Reading to a Bill introduced by my right honourable friend David Hanson, which is scheduled for Second Reading in April. The Bill would end the right of all hereditaries to sit in the Lords with effect from 31 December 2019. Surely the initiative for sensible reforms of this House should come from this House. With the help of the noble Lord, Lord Steel, and the noble Baroness, Lady Hayman, we have had a number of very good reforms in recent years and I believe that with the Lord Speaker’s committee due to report next month, there will be more to come. We should reform ourselves, not wait for someone else to do it for us.
I submit that the case for ending the by-elections has strengthened inexorably since I introduced my Bill 12 months ago. We now have the opportunity in this House to initiate a simple sensible reform that would hurt no one and cost nothing. My Bill was first in the ballot and we are at the start of a two-year parliamentary Session, so parliamentary time should be no obstacle to the passage of a simple two-clause Bill. The case is overwhelming, the time is right, so let us do it. I beg to move.
Viscount Younger of Leckie (Con)
My Lords, as a hereditary Peer I have a brief say at the beginning of this debate. We have a long day of three debates and a large number of speakers ahead of us. I remind the House that there is an advisory speaking time of five minutes for this debate and I urge speakers to adhere to that.
Lord Trefgarne (Con)
My Lords, as the noble Lord, Lord Grocott, has said, this Bill is very similar, if not identical, to the one he introduced about a year ago, which eventually did not pass. I am afraid that my position on this Bill is very much the same as it was on the last one, so I apologise if what I now say is something of a repetition of what I said last year.
All this goes back to the House of Lords Act 1999. At that time, your Lordships’ House was some 1,200-strong: split roughly half and half between hereditary Peers and life Peers. The Bill of that year, as originally introduced, simply removed all hereditary Peers from your Lordships’ House without any qualification. That proposed Bill inevitably met serious opposition in your Lordships’ House. Indeed, given the political numbers of that time, doubtless the Opposition could have rejected the Bill outright. However, Lord Weatherill, assisted by Lord Cranborne—now the Marquess of Salisbury—and my noble friend Lord Strathclyde, was able to persuade the then Government that a deal needed to be done, which it was, to the effect that 92 hereditary Peers would remain, topped up as necessary through by-elections until such time as House of Lords reform was complete.
The then Lord Chancellor, the noble and learned Lord, Lord Irvine, declared that agreement to be,
“binding in honour on those who gave their assent to it”.—[Official Report, 30/3/99; col. 205.]
Your Lordships may ask what was meant by “complete” House of Lords reform. I would say that the Bill introduced back in 2012 by the then coalition Government was indeed just that. Had that Bill reached the statute book, it would have been the end of the 1999 agreement. Unfortunately, that Bill did not pass through the other place and no further attempts of that nature have been made since.
There is now talk of further reform, for example along the lines proposed by my noble friends Lord Cormack and Lord Norton, which I would not necessarily oppose—not in principle, anyway. In addition to these ideas, as the noble Lord, Lord Grocott, has pointed out, the noble Lord, Lord Burns, is now chairing a Speaker’s Committee to examine the size of the House, which will surely have a bearing on the matter. I regret that that Committee does not include a hereditary Peer; but the noble Lord was good enough to agree that I and a couple of my hereditary colleagues could give evidence to his Committee, which we did. We look forward to his report.
Lord Howarth of Newport (Lab)
My Lords, I have noticed that the most ardent defenders of the status quo are certain noble Lords whose hereditary peerages are of the least antiquity. Is that because they hope that the effluxion of time will clothe them as legislators in some flimsy legitimacy?
Lord Trefgarne
I would have to reflect on that question before I answered it.
My Lords, against the background I have described, I have to say that the Bill of the noble Lord, Lord Grocott, is inappropriate and untimely. I shall do my best to persuade your Lordships accordingly.
Baroness D'Souza (CB)
My Lords, I shall begin by making it clear that there is nothing ad hominem about this debate. We are extremely fortunate to have hereditary Peers providing expertise on development, aid, science, transport, the environment, learning, health, defence, law and business, among many other fields. Those Peers also regularly contribute to a host of other issues that come before the House, more often than not with a particular kind of disinterest that makes their contributions all the more valuable.
Today, we are discussing the principle of maintaining the 90 or so hereditary Peers in perpetuity by means of elections. We have heard the argument that it was a promise made at the end of the last century that must be honoured until full-scale stage two House of Lords reform takes place. That argument becomes weaker by the day. Over the last decade and more, the House has changed significantly by means of incremental agreements; now, we will possibly be discussing a degree of enforced voluntary retirement to reduce our numbers. We already have the power to debar those convicted of serious criminal offences—changes that would have been unthinkable only a few years ago. The circumstances whereby this odd situation arose are well-known: it was a deal in the interests of getting the main elements of the House of Lords reform Bill passed in 1999. The crucial amendment was tabled by the late, and much lamented, Lord Weatherill, who himself subsequently proposed a Private Member’s Bill to end hereditary by-elections.
In 2007, a survey of Peers resulted in 71% agreeing that hereditary by-elections should cease; yet support in the Chamber for the subsequent Constitutional Reform and Governance Bill—CRAG—was notable by its absence, thereby allowing a small group of Peers to talk it out. The view that any legislation now would be a breach of faith, if not contrived, is certainly not put forward with the best interests of the House in mind.
Phasing out hereditary by-elections is never going to be an easy fix, but there are some legitimate concerns, one of which is the potential imbalance between the two main parties, were there to be a cessation of by-elections. Another is that we, as a Chamber, might be spurning unique experience or expertise by abolishing by-elections. Surely there could be a system whereby hereditary Peers wishing to sit in the Lords could apply, like others, to be Members based on criteria such as expertise and willingness to contribute regularly. That system could be weighted to reflect a more equitable balance between the parties.
I know that a hustings system, which helps to select hereditary peers who offer expertise, is now routine, but it is still the operation of a hereditary principle. That is what sits uncomfortably with the image of the House of Lords that most of us wish to promote—that of a spare, experienced and expert body of people, carrying out a vital scrutinising role and thereby acting as a constant check on Government powers.
It is too easy for critics, of whom there are many, to lob brickbats at us: we are unelected; we are too many; we are unrepresentative; we are elitist. It is this latter charge that we could relatively easily dispense with. In the past few years, a number of mechanisms have been employed to derail efforts to confront the hereditary issue. These have included what cannot be called other than filibustering, and of course the continuing heavy reliance on the commitment made before the passing of the 1999 Act. Perhaps a further factor might be the unwillingness of many in this Chamber to state publicly their belief that the practice of by-elections should now be phased out.
A rational, thought-through argument upholding the hereditary principle has yet, in my view, to be articulated. I therefore hope that this Bill will continue its passage through this House, and an accommodation will be reached that reiterates the value of the hereditary Peers we are fortunate to have but recognises—perhaps sadly—that the principle must now come to an end.
Lord Rennard (LD)
My Lords, “It feels like ‘Groundhog Day’,” is an expression that is bound to be used as we debate this issue again. I certainly feel like Bill Murray, who played the weatherman in that film who finds himself inexplicably living the same day over and over again. As the US Congressman Mo Udall once famously commented, “Everything has been said, but not everyone has said it”. I expect to hear the same arguments over and over again, as little has changed since last December, when the House clearly expressed the view of its Members that a Bill such as this should be allowed to make progress and be considered by the House of Commons.
On 9 December last year, the amendment aimed at blocking the progress of the Bill of the noble Lord, Lord Grocott, was defeated in this House, as he said, by 95 votes to 26, with 78% of us voting to make progress on the Bill. My first point is simply that every speech made on this subject, on every side of the debate, references respect for this House. Therefore, the will of the House should now be respected and we must put an end to the practice of holding by-elections to maintain a substantial hereditary presence in the House indefinitely, long after those hereditary Peers chosen to remain in 1999 have passed away.
My second point is that almost every Peer who speaks in this Chamber says that we must also respect the primacy of the House of Commons, yet a small number of Peers seek to block the House of Commons from being allowed even to debate the Bill. The principle of it has already been voted on by the elected House: the principle of ending the by-elections to top up the number of hereditary Peers was voted on by MPs in January 2010, when they supported the measure as it was proposed in the then Constitutional Reform and Governance Bill. They did so overwhelmingly, by 318 votes to 142. The House of Commons has already voted in support of exactly what is in this Bill, by a majority of 176, or by 66% to 34%—again, an overwhelming majority.
Those who are defending the rights of hereditary Peers to vote to elect more hereditary Peers to be a part of this legislature, should perhaps take note of the previous votes of this place and the other place on this very issue. They should allow this Bill to go forward to the Commons, without further filibuster bringing about further damage to the reputation of this House.
Thirdly and finally, I want to challenge those suggesting that a deal seen as a temporary measure, and secured by the votes of both Houses in 1999, must be binding for all time. Some noble Lords regard those votes as being irrevocable, but I believe that those same noble Lords also subscribe to the principle that one Parliament cannot bind any successor Parliament; for if it could, what would be the point of our meeting to consider much of the legislation that we do consider, if an issue has been decided in the previous Parliament, let alone one five Parliaments ago?
Baroness Taylor of Bolton (Lab)
I am grateful to the noble Lord for giving way. Does he think it significant, as the previous speaker said, that Lord Weatherill himself tried to change this situation later?
Lord Rennard
I am grateful for that intervention; that is a highly significant point. It is very clear that some of those most involved in the negotiations of 1999 would not favour our being where we are today, and would favour this Bill making progress. The argument that we cannot discuss this issue or make progress, because of an agreement in 1999, is absurd in terms of parliamentary democracy.
What, for example, would be the point of our debating the EU withdrawal Bill, if the European Communities Act 1972 had been binding on successor Parliaments? Would the noble Lords fighting to preserve hereditary by-elections also be arguing that we cannot consider leaving the EU, because of votes by both Houses ratifying a treaty 45 years ago and subsequently confirmed by the 1975 referendum? I suspect they will not make that argument.
Lord Hamilton of Epsom (Con)
I thank the noble Lord for giving way. The noble Lord, Lord Rennard, was, like me, appointed to this House on the whim of his party leader. Does he really think that is more legitimate than being elected from a body of hereditary Peers?
Lord Rennard
The noble Lord considers it a whim—I suspect many other noble Lords would disagree. There are at least some criteria by which people who are elected leaders of political parties make appointments. A hundred years after the attempts to reform the House of Lords before the First World War, when it was announced by the then Liberal Government that we would end the hereditary principle to replace it with the popular one, I do not think we can justify continuing to maintain the hereditary presence in any way. It seems that we must let this Bill proceed and we must vote for a minor, but important, reform to improve the credibility of our Parliament.
Lord Foulkes of Cumnock (Lab)
My Lords, I rise to support the Bill, moved so ably and wittily by my noble friend Lord Grocott. I want to start by asking a question that many people outside this House are asking: what is the House of Lords for? What is our purpose? Some Members opposite, no doubt including the noble Lord, Lord Trefgarne, think that it is for wise men—particularly men, reluctantly accepting women now—to advise the Commons, to offer our wisdom, but ultimately to accept our impotence. I do not believe that is how the second Chamber of a bicameral system should operate. It is entirely ridiculous. We have no authority whatsoever. We have no legitimacy whatsoever. Ultimately, this place has to be reformed. I am glad that my party—the Labour Party—is in favour of an indirectly elected senate of the nations and regions. On other occasions I will argue the case in favour of that.
Meanwhile, as we acknowledge in the Labour group in the Lords, and indeed other people have acknowledged, there is a need for reforming our existing structure. We have set up a committee to look at the size of the House. I am not sure that it is the wisest thing to have as chair someone who, though a very distinguished former civil servant, is not one of the best attenders of the House, to see how we actually operate. But there we are; we have that.
Meanwhile, one of the things that I hope will be looked at is ending the participation of all the hereditary Peers, as well as ending the by-elections. Those who should legitimately sit here or who now have a place to offer some wisdom or advice in the House could become life Peers, on the clear understanding that they are, like most of us who have been appointed, working Peers. We should see the second Chamber as based on the concept of working Peers.
Working Peers, however, need some assistance. I was sitting in my office the other day in Millbank House, and the telephone rang. Naturally, I answered it, and someone from a large company asked, “Could I speak to Lord Foulkes’s diary secretary?”. I said, “Yes, you are speaking to Lord Foulkes’s diary secretary”, and I fixed myself an appointment. We do not have diary secretaries; most of us do not even have secretaries.
I had some correspondence with the Clerk of the Parliaments recently, just the other day, suggesting that he might second one of the members of his extensive staff to help me. He thought I was joking, but I am not. People outside this House genuinely believe that, like MPs, we have three or four people working for us: doing our research; making our appointments; dealing with correspondence—I said this in my letter—and emails and phone calls; dealing with invitations; arranging our travel; and dealing with our committee papers, for those of us who are active on committees.
Then there is dealing with the ever-increasing demands of Black Rod—who is not my favourite person in this House—for security. We have to inform security about every visit, which I can understand as far as security is concerned, but it does impose additional burdens on us. How do we deal with it? We have absolutely no one to help us. It is ridiculous in the 21st century.
Lord Snape (Lab)
I am grateful to my noble friend for giving way. Can he tell the House whether he would like to employ anybody to write his speeches?
Lord Foulkes of Cumnock
I was going to refer to the noble Lord, Lord Snape, as my noble friend, but I am not sure whether I should. The speeches would certainly be much better than they are at the moment. But he is right. I had two speeches yesterday in Grand Committee—one on St Helena and the other on Brexit—and here I am speaking today. If we want to participate we have to do research, do the work and try and think of—
Lord Foulkes of Cumnock
Something witty to say in our speeches. My noble friend Lord Grocott has some help to do that, although most of it is his own work. Turning to the Bill—
Lord Foulkes of Cumnock
Previous speakers have gone on even longer. Turning to the Bill, I will just say that I strongly support it. It is a step—just the first step—towards reform. Indeed, it is the first step towards sanity.
Lord Cope of Berkeley (Con)
My Lords, the noble Lord has got a whole series of different complaints which are not relevant to this debate off his chest, and I hope he feels better for it, but I hope he will forgive me if I do not follow him exactly in what he had to say.
The noble Lord, Lord Grocott, has based his case, as he often does—I beg your pardon, as he always does I think—on logic. That is his habit, but logic is not the only guide to our constitution. From a practical point of view, I believe that the House has gained from having hereditary Peers and from the system of electing new ones to replace those who pass on. We all know of the valuable service of individual hereditary Peers, some of whom came back of course as life Peers—I see the noble Lord, Lord Berkeley, the holder of one of the most distinguished and oldest peerages in the House, who sits here as a life Peer, in his place. All of us could list a whole number of hereditary Peers by name who play a great part in this House—the noble Baroness, Lady D’Souza, emphasised this in her speech. As we have been reminded, and as many of us recall, the system created in 1999 was expected to be temporary. But as we also all know, in the British constitution, when temporary expedients work, they tend to last. This one has lasted, in my view because it has produced Members who make valuable contributions to the House.
But whatever one’s point of view on that, a central point of the argument or the criticism made by the noble Lord, Lord Grocott, and others is that in some cases when a hereditary Peer dies, there are only three electors under Standing Order 10(2). If the House wishes, we can change that without legislation. It is enshrined solely in the House of Lords Standing Orders. The legislation requires there to be by-elections but does not specify the electors for a by-election or some of the other arrangements. That is all in Standing Order 10. We can amend that Standing Order, so that, for example, all vacancies are filled by election under Standing Order 10(3), with the whole House voting instead of just the appropriate hereditary Peers as now for many vacancies—that is, elections conducted under Standing Order 10(2). That would of course increase the electorate substantially. If we were to do that, it would be important that the excellent Carter convention, which preserves the proportions of the different party groups, should continue under such a proposal. That could be included, if we wished, in the changes to the Standing Order to bring this about.
This plan is entirely within the authority of this House and would not involve the Commons, nor the legislative procedures inevitably involved in the wider proposal of the noble Lord, Lord Grocott. It would involve no expenditure of government or other time in the House of Commons and very little in this House—the noble Lord, Lord Grocott, and I have reason to know about the difficulties with parliamentary time and its allocation by government. As I say, this would take very little time in this Session, in which, although it is a long one, parliamentary time is going to be extremely scarce.
The Earl of Caithness (Con)
My Lords, I regret the introduction of the Bill, but not as much as I regret the fact that we have not had a further Bill, after the 1999 Bill, to reform this House. I think that the noble Lord, Lord Grocott, and I are on the same sheet of paper when we think what the future of the House should be. We hope that something will happen fairly soon, and it will considerably improve the House.
The Earl of Caithness
No, I listened to the noble Lord for 12 minutes and I only have five.
The noble Lord, Lord Grocott, intervened on the Farriers (Registration) Bill on 26 April this year, and your Lordships can find what he said in cols. 1392-93. That was a Bill that I had taken forward, and he was basically asking whether I would afford the same courtesy to this Bill of his, which was due to come forward, as the House was affording to mine by not putting down an amendment. As a result of that intervention I got a number of emails from people asking: “Is this really how the House of Lords works? Is it, ‘You scratch my back and I’ll scratch your back and we’ll get the legislation through’?”. My response was very firm in saying, “No, that is not the way I operate”, and I have to say to the noble Lord, Lord Grocott, that I will be putting down amendments.
I commend the noble Lord for his consistency in bringing forward this Bill and I hope he will commend me too for my consistency, along with that of my noble friend Lord Trefgarne. Whether it be the Steel Bill, the Hayman Bill or the Grocott Bill, we have been utterly consistent in our opposition to this particular proposal. The reason is that the agreement back in 1999 was hugely important. It resulted in a compromise that many people did not like but, as the noble and learned Lord, Lord Irvine of Lairg, the then Lord Chancellor—whom I am delighted to see in his place again today—said, compromises are not necessarily totally acceptable but they are the practical way forward.
The noble Lord, Lord Rennard, said in his speech that the agreement was binding for all time. That is absolute rubbish; that was not the compromise at all. The compromise was that it was binding in honour for those who voted for it until such time as there was further reform. I believe that the longer the by-elections take place, the more impetus there will be for a major reform of this House. It might take longer than 20 or even 25 years, but if the noble Lord, Lord Grocott, succeeds, we will turn ourselves into a totally appointed Chamber, very keen to defend that position. I think that that is quite wrong for the British constitution in this day and age.
The noble Baroness, Lady D’Souza, whom I also call a friend, said that it was principle. I say to her that it was not; it was a commitment binding in honour, and the noble and learned Lord, Lord Irvine, said so twice in two separate paragraphs. That is the reason for my objection to the Bill and I will continue, as I have done in the past, to oppose it.
Lord Pannick (CB)
My Lords, I support the Bill. The House should be very grateful to the noble Lord, Lord Grocott, for pursuing the subject, because these by-elections are doing severe damage to the reputation of this House. We do important work here—scrutinising legislation and in committees—and by and large we do that work very well. However, the credibility of this House is undermined by the farce, and it is a farce, that membership can be won in a by-election in which a handful of electors vote for candidates whose eligibility depends on the accident of birth. The by-elections are quite simply an embarrassment to this House.
We should also bear in mind a point that has not yet been mentioned in this debate. Hereditary peerages, with very limited exceptions, can descend only through the male line. Only one of the hereditary Peers in this House is a woman: my esteemed colleague on the Cross Benches, the noble Countess, Lady Mar. Her title is an exception to the no-women rule, as most Scottish peerages can pass to a daughter if there are no sons. The noble Countess has been one of the 92 since 1999 but no woman has been elected in a by-election since 1999, and there is only one woman on the register of nearly 200 hereditary Peers who have put themselves forward to be considered at future by-elections. I simply cannot understand how it can be consistent with basic principles of equality for this House to maintain by-elections when eligibility as a candidate is effectively excluded for women. This is relevant to the point raised by the noble Lord, Lord Hamilton of Epsom, as to whether by-elections are a less satisfactory means of becoming a Member of this House than appointment by the Prime Minister. Yes, by-elections are less satisfactory for many reasons, but one of them is that the appointment procedure does not effectively exclude women.
The main argument that appears to be advanced in opposition to the Bill by the noble Lord, Lord Trefgarne, and the noble Earl, Lord Caithness, is a historical one. The deal was done in 1999. I agree with the noble Lord, Lord Rennard: there is no other area of law and practice where Parliament feels itself bound by what its predecessor did. Why should the approach adopted by Parliament a generation ago bind this one? This House in 2017 is no more bound by what was decided in 1999 on hereditary Peers than it is by decisions taken in 1999 on the economy or foreign policy.
The only other argument that has been advanced this morning is that advanced by the noble Lord, Lord Cope, who says that hereditary Peers have individually been valuable Members of this House. No doubt they have, but there will be nothing to prevent the leaders of the political parties or indeed the House of Lords Appointments Commission putting forward the names of hereditary Peers for membership of this House if their individual qualities make that appropriate.
The Bill raises a clear issue of principle on which the House will need to take a view. I echo the hope expressed by the noble Lord, Lord Grocott, that noble Lords who do not support the Bill will resist any temptation to table a series of amendments that will unnecessarily take up time and may prevent the Bill making progress. Let us instead have a full debate in Committee on the only issue raised by the Bill: should these by-elections be retained or abolished?
Lord Cormack (Con)
My Lords, the noble Lord, Lord Grocott, introduced the Bill with his customary wit and made an extremely good case. It is one with which I find myself in substantial agreement. He was slightly unfair on himself, though, because he did not stress two things that he stressed last year when he introduced a similar Bill. First, he talked about 90; his Bill in no way touches upon the two hereditary offices of state, the Lord Great Chamberlain or the Earl Marshal. He has deliberately excluded them for constitutional reasons, and I think that is very sensible. Secondly, he did not spell out as clearly as he did last year that no single hereditary Peer sitting in your Lordships’ House at the moment is threatened by the Bill. This is not an expulsion Bill; it is merely a Bill that says in future we should not have these by-elections. I believe the case he has made, and which has just been echoed persuasively by the noble Lord, Lord Pannick, is one that should carry your Lordships’ House.
I believe it is a great pity if two or three, in a House that has a number of 803, seek to block what quite evidently is, or was last year, the will of the majority. I echo those calls that have been made to my noble friends Lord Trefgarne and Lord Caithness: please do not filibuster, particularly at a time when this House has potentially the most important task that it has had for over a century. We are going to have legislation brought before us on which the individual and collective wisdom of this House could have real influence without in any way challenging the acknowledged supremacy of the other place, so do not let us be involved in protracted navel-gazing. If there is a broad consensus for the Bill, let it go through.
I address my next remarks to my noble friend on the Government Front Bench. He may well say at the end of the Bill that the Government have no intention of giving it time. Indeed I suspect that is what he will say, although he will say it extremely elegantly. If the Government will not allow the Bill to pass then it will not pass; the noble Lord, Lord Grocott, knows that as well as we all do. However, there is something that the Government could and should speed forward. This has already been touched on by my noble friend Lord Cope, and it is a point that I myself have made many times in the past. What brings the House most into disrepute in this area is the ludicrous size of the electorate. We had 11 candidates and three voters, and a similar thing would apply if we had a vacancy on the Labour Benches. That makes no sense. It is impossible to defend. No one with an ounce of logic in his brain could begin to defend it. So let us, at least as a short-term measure, turn the whole House into the electorate when there is a vacancy. The noble Lord, Lord Grocott, dealt wittily with the fact that 43% was 10% less than the poll in the lowest polling constituency in the recent general election. Nevertheless, if there are 800 voters and 400 or 500 of them vote, that is infinitely preferable to the farcical spectacle that we have at the moment.
I support the Bill and hope that it will pass but, if it does not, I hope that at the very least the Government will heed what my noble friend Lord Cope and I have said: we must do away with these tiny electorates. Let no one talk about precedents as things that bind for ever. I should love to hear the views of the noble and learned Lord, Lord Irvine of Lairg, on this, and perhaps one day we will get them, but I remember the pledge made by Winston Churchill that he would restore the university seats. He said it; he meant it; he did not do it. It is time to move on.
Lord Brabazon of Tara (Con)
My Lords, when I was elected one of the 90 in 1999, I never supposed that I would still be here 18 years later, because we were promised at that time—at least, I think it was a promise—that there would be further stages of reform. There was one attempt by the coalition Government, which failed in the House of Commons. There was no attempt in the 11 years of the Labour Government to bring any further reform forward. As for the matter of the hereditary by-elections, which is the subject of the Bill, as has been said, they were the result of a deal done among those involved at the time. They do not have to go on for ever, because if we get a second stage of reform they will stop.
I agree with the noble Lord, Lord Grocott, and others who have said that some of the by-elections have been curious, to say the least. At least on our side of the House, we have a reasonable-sized electorate of about 50, and we have elected some very capable people, one of whom is sitting at this moment on the Government Front Bench, but I take the point that my noble friends Lord Cormack and Lord Cope have made that there could be a better way of dealing with the size of the electorate.
I am delighted that the Lord Speaker has set up a committee on the size of the House, which has been referred to. The real problem of the House in the public perception is its size. It is worth reminding noble Lords that when the hereditaries were effectively abolished in 1999, the total size of the House was 666. It has now grown to just over 800, and there can be no more stark example of that, I fear, than the Lib Dems, who in 1999 had 54 Members. They now have nearly double that number. In 1999, they had 46 MPs; they now have 12. I hope that the committee, which I think is to report next month, will have something to say about how we deal with the size of the House. If it makes any recommendations concerning the hereditaries or the hereditary by-elections, we will have to see what it says, but if they are part of a more extensive proposal I would be inclined to go along with whatever is suggested. I do not know whether it will make any recommendations about hereditaries—we will have to see—but the timing of the Bill of the noble Lord, Lord Grocott, is slightly unfortunate given the imminent publication of the report. At least it will be out before we get to the next stage of the Bill and, for what it is worth, I assure the noble Lord that I will not be part of any filibustering attempt, if one is to be made.
Lord Anderson of Swansea (Lab)
My Lords, I only wish that other noble Lords were prepared to give that same assurance. We might then indeed make some progress. As the wags say, this is déjà vu all over again. I was surprised when my noble friend Lord Grocott told me earlier that it is only the second time that he has introduced this Bill, as it seems to have recurred a number of times. I looked at what I said last time and, to my surprise, I adopt all I said at that time.
In my view, the case for the Bill is overwhelming. The status quo is indefensible—but of course, that does not stop a handful of noble Lords from opposing it. To choose members of the legislature simply by accident of birth is surely absurd, as absurd as going on to the top deck of an omnibus and choosing men—as the noble Lord, Lord Pannick, said, it is only men. It would perhaps be better to go into the dining room of the Athenaeum and choose just the men who happened to be there. I make no comment on the quality of the existing hereditaries, save to say that I am very impressed by them, but we do not know whether the sons of those same hereditaries will be as competent and as diligent as them.
Lord Hamilton of Epsom
Surely the effect of an election is that you sort out the best candidates.
Lord Anderson of Swansea
I am not wholly sure that that is always the position in the House of Commons, and, given the smallness of the electorate, it is unlikely to be the case in the House of Lords.
It is rumoured that there is in Whitehall an official book—a number of Members of your Lordships’ House have been officials—from which civil servants draw when they wish to block an initiative and prevent necessary change. There are many devices set out in this book. One is, “This is not the appropriate time”. If not now, when? Another is, “This is not the appropriate vehicle”. If not, what is the appropriate vehicle? Then there is, “There should only be a comprehensive package of reform”. How comprehensive is comprehensive? Clearly, only incremental steps are feasible in practice. “We agree in principle, but the drafting is deficient”. Well, accept the principle of the Bill. “A deal was done”. Are we to say that the deal was cast in stone for all time, whatever happens? Surely, the drafters did not imagine that 18 years on, we would still be in the same position.
I look forward eagerly to hearing what particular devices the Minister will draw on in his reply from the same litany of excuses for inaction—perhaps it will be a whole mixture of these—but the best argument which has been used, the only one of any substance, is that a committee is sitting whose recommendations we await. I hope that the remit of the Lord Speaker’s committee is sufficiently wide to include the hereditaries. However, if it is not, as my noble friend Lord Grocott pointed out, the 90 hereditary Members who are here would increase their numbers proportionally, and therefore the whole position would be even more anomalous. Perhaps we can be enlightened on that.
We know that the Lord Speaker’s committee will make its recommendation next month, but generally we do not know what the Government’s position is on the Bill, save that almost certainly they will oppose it. We know we have had the threat that a certain very limited number of Members will move amendments and presumably filibuster with the object of killing the Bill, and that should not be so. We go around the world trying to teach colleagues in other countries about democracy. Surely, this is an area in which we are mightily deficient, and we should change it as soon as practicable. I support the Bill.
Lord Elton (Con)
My Lords, I speak as an elected hereditary Peer. I was elected not by my party but by the whole House. In fact, the election in which I stood was won by the noble Countess, Lady Mar, and Lord Strabolgi and I tied for second place. Therefore, I regard myself as having some species of such electoral legitimacy as is available to people in my position. I accept that no Parliament can bind its successor; all types of Members of this House should agree with that. At least Members who have previously been Members of the other place will agree that elected people should be bound in honour to keep to what they were elected on, and to stick to their manifesto—a controversial point.
One thing that has not been mentioned in this whole debate is the really big issue between this House and the other House. The increasingly important feature of our constitution is that the second Chamber, whatever it is, must be independent of the other and in a position to criticise, warn and to a certain extent delay. That is our function, and our power to exercise it has been eroded over time to the extent that, when we had the great dispute over statutory instruments in the last Parliament, the noble Lord, Lord Strathclyde, argued that it was the other place that must control things without interference from this place. I very much regret that, although I warned him before the Division that he was going counter to the Cunningham committee’s catalogue of the conventions between the two Houses, I slavishly voted with him—but thereafter I was adamant.
Why did I say that I would stay here? I said that I would stay to ensure that, whatever the final decision made about reforming this House, it would not reduce— beyond the point to which it already has been reduced —the power of this House vis-a-vis the other place. So, while I do not regard myself as statutorily or conventionally bound by the decision of this House in an earlier iteration, I regard myself as bound by my undertaking not only to your Lordships who are still here—I do not mean still alive—but to all those who, voluntarily and with some complaint, gave up their rights as hereditary Peers so that this country might modernise itself. The duty of persons such as myself is to assist in getting root-and-branch reform of any root or branch of this House that needs changing.
It has been suggested that my noble friend Lord Young may say that this Bill is not the right vehicle for reform, and I entirely agree—but I think that it could be changed, which would be quicker than bringing in a new Bill. If it cannot be, I am entirely on the side of my noble friends Lord Hamilton and Lord Cope, but, if it can be, I think it should be. Five desiderata were agreed by the Cormack/Norton group, the Campaign for an Effective Second Chamber, when last year it brought out a paper. I shall not recite them now because I shall run over my five minutes, and I have also run out of voice. But if the noble Lord’s Bill were to have them incorporated, I would support it. If he does not feel able to do that, I have a Bill in the pipeline and I shall be happy to offer it to your Lordships as a means of getting some really workable and desirable reforms to take us out of the ridiculous area we are now in.
Baroness Berridge (Con)
My Lords, I, too, begin by applauding the hard work of hereditary Peers in this House, such as my noble friend Lord Howe, which is exemplary. This is the first time I have spoken on this issue, but the current system undermines the credibility of all the hard work which your Lordships undertake on behalf of the British public.
In January this year, Her Majesty’s Government outlined their argument in response to a Question from the noble Lord, Lord Grocott, that suspending these by-elections would result in a change to a wholly appointed House, but I struggle to understand how that argument can be raised against this reform. Can Her Majesty’s Government really be saying that the public wish the hereditary principle to be part of the selection criteria for their representatives in the second Chamber and would want it retained—otherwise the evil of a wholly appointed House would befall us?
Your Lordships’ House and Her Majesty’s Government are here to serve the public, and I have seen nothing to suggest that Her Majesty’s Government have consulted the public or have their views or interests as the basis for at best their technical opposition to this Bill. In fact, I think that the reverse is true: there is a very strong anti-establishment and anti-elite sense in sections of the UK public, and having part of the legislature selected by birth or entitlement in its literal sense is an anathema in the 21st century. Can my noble friend prove that the public think otherwise? If the Government are not prepared to consult, they should drop their opposition to the Bill.
However, more important to me than the objection to the selection criteria for a role in a 21st-century legislature is the gender and racial discrimination that the current system of selection embodies. I join wholeheartedly with the comments of the noble Lord, Lord Pannick, in relation to gender discrimination. Although peerages are exempt from the equalities legislation, for the Mother of Parliaments to have a gender discriminatory element in its selection is unjustifiable. As a Member recently selected for the CPA UK executive, I believe that it is contradictory to the millions of pounds of UK taxpayers’ money spent through the CPA, the IPU, the Westminster Foundation for Democracy, DfID and the FCO on parliamentary capacity building, when I have to hide sections of the selection criteria from visiting delegations as I am so embarrassed and would not want them to follow this example.
For the record, I do not vote in these elections when no woman is on the ballot paper; should a woman be on the ballot paper, I will consider all candidates on merit.
Further, and perhaps more controversially, no information is held by the Journal Office on the racial profile of this closed group of potential Members of your Lordships’ House. I rely merely on the news report from 2013 of the future first black Marchioness of Bath to say that the group is currently entirely white.
I recognise that this discrimination is de facto—in fact—not de jure. There is no evidence that there is any racial discriminatory element in any letters patent. However, de facto it will take at least 50 years to change both the electors and the candidates for election to your Lordships’ House. Imagine the party groups, the Appointments Commission, or the Bishops recruiting on such a basis. If Her Majesty’s Government are seriously saying to this House that moving to a fully appointed House is such a radical reform which they cannot support or give time to, and that this is more important than selecting from a whites-only group, then I am speechless.
I conclude with a disclaimer. I disagree with the noble Lord Grocott. The retention of this system is not just about a handful of Members of your Lordships’ House who may attempt to filibuster—though I would like to be put to the test on outlasting them—but about the responsibility of Her Majesty’s Government who, in our constitutional system, control the legislative agenda. Peers overwhelmingly do not want it, MPs would not support it, and so the gender and racially biased system remains at the behest of Her Majesty’s Government. Why a Government led by a Prime Minister who cares passionately about racial and gender injustice lacks the political will to sort this out is hard to explain.
Sadly, it took 50 years from when women could become MPs for them to enter this House as life Peers, in 1958, and it was not until 1963 that female hereditary Peers could be admitted. The Government found legislative time for a voluntary retirement age, for expulsion of criminal Peers, and for women Bishops—I am happy to see one in her place—to jump the queue. Next year, we celebrate a century of women in Parliament as MPs; surely Her Majesty’s Government will have acted by then.
The Earl of Erroll (CB)
My Lords, I am in favour of reform of the methods of getting into the House of Lords, but this Bill will ensure that we have an appointed House of Lords within a generation or shortly after. This has not been the clearly expressed intention of the House of Commons whenever it has voted on this issue. That is my major stumbling block because I, like many others, think that lawmakers must have democratic legitimacy and therefore be elected. This is not satisfied by an appointed House.
The trouble is that there are Members of both Houses who think that the other place might lose its primacy if we end up having an elected, or majority- elected, House over here. That is why they want to see an appointed House, even if it is via the back door as is happening here. The composition of an appointed Chamber will inevitably be heavily influenced by the Civil Service, which will end up drawing up the guidance for the appointments body and, probably, determining the membership of it.
The next challenge is that the Prime Minister is actually the head of the executive branch—the Civil Service. He or she may also sit in the House of Commons as the leader of the majority party, but these two roles should not be confused. It is democratically indefensible that this person should be able to exert immense influence on the membership of one of the Chambers of the legislature, whose purpose is to pass laws which are there to control their own Executive. That is not a good idea in any way at all. If we want greater democratic authority, and we should, we should first remove the Prime Minister’s powers of appointment via the honours system and then we can see how a replacement appointments system works in real life. If we like it, then the hereditary Peers could retire.
I had thought that most Members of both Houses of Parliament would be believers in a two-chamber democracy with checks and balances, but I now realise that a lot of people are either Commons supremacists or they think that central state control is not a problem. However, that is not why we are in Parliament.
I agree that the by-elections process is flawed, and we should consider the thoughtful ideas put forward by the noble Lord, Lord Cope, for reform of the Standing Orders. We could also alter the balance of places between the parties based, say, on the total number of votes cast for each party at the last election, while preserving the 20% of independents through the Appointments Commission. All of this would be possible without primary legislation.
By the way, the noble Lord, Lord Pannick, might be amused that I am sitting here because of my mother who sat before me: I am a Scottish Peer. The Queen sits on that Throne as Queen: the royals can also do this because of James VI—I think you call him James I.
Our small proportion of hereditary Peers was put here with a purpose: to ensure further democratic—I remember those words being used—reform of the House of Lords. It is my duty to try and see that. The fact that it is taking a long time for the other place to come up with an acceptable reform is not our fault, but until they do we hereditary Peers must stay or it will not happen. I will vote for a satisfactory, sensible, sane solution which encapsulates democracy at its core. This Bill is not that and is a dangerous step in the wrong direction.
Lord Mancroft (Con)
My Lords, there are two main premises to this Bill. The first is that the hereditary Peers’ by-election is a ludicrous and, to some, embarrassing measure that is past its sell-by date, and the second is that this is one small piece of incremental reform that your Lordships can enact without too much fuss, to modernise the House, and show the world how relevant we are. It is true that the by-elections are a bit odd, and may look even odder to outsiders, but they are no more half-baked than some of the other reforms that the Blair Government made such a mess of. There are lots of oddities in our constitution, but it is important to look at them not in isolation, but in the round, as a whole.
The more I look at your Lordships’ House in the whole, the more I have to conclude, reluctantly, because I am fond of it as it is, and even fonder of it as it was, that it does not work as well as it could. Sitting through our interminable debates on reform of this House, I have heard so many speakers tell the House and themselves what a very good job we do. Sadly, I am afraid that I do not agree. We do not do a bad job, but it is not as good a job as we could do or used to do. Our general and Back-Bench debates, which were often of such extraordinary quality and depth that they really were listened to around the world, and influenced thinking and policy-making at the other end of the Corridor and beyond, are now all too often pretty turgid stuff. Overlong speakers’ lists result in speeches so short that they are almost meaningless or, worse still, a series of individual statements, bearing little relation to previous speeches, and often followed by a ministerial wind-up on what often appears to be a completely different subject.
Lord Foulkes of Cumnock
Does the noble Lord agree with me that it would be appropriate for Members to pay attention to the Companion, which states that speeches should not be read?
Lord Mancroft
My Lords, I am most grateful to the noble Lord for his comments, as I always am. I will pass them on to all noble Lords who may be tempted to read. Sadly, I am so blind I cannot really read any of it at all.
Lord Mancroft
My Lords, I do not wish to get involved in that debate. The one initiated by the noble Lord, Lord Grocott, is much more interesting.
Nowadays we also have unedifying and tetchy Questions—the noble Lord, Lord Foulkes, may know a little bit about that—which seek and elicit little information of any use to anybody, but serve only to allow the usual suspects to grandstand, and junior Ministers to practise repeating the same bland, Civil Service jargon.
More importantly, it is difficult to conclude that we revise legislation as well as we used to, with a never-ending stream of Second Reading speeches in Committee, and too many important matters decided on Report on the Whip, without any reference to constructive input from the Back Benches. This is not, as some suggest and have suggested again today, because the House is too big. As we all know, it is actually rather smaller than it was 50 years ago. It is not a problem of quantity, but rather of quality. That is not directly because the number of hereditary Peers was reduced—by 90% on paper, or 45% in practice—but is a consequence of their departure en bloc. If the existence in the House of 92 Peers who owe their seats to their birth is an anomaly, it is not actually an outrage. I do not find that most people around the country are particularly horrified or embarrassed by it; they do not really think about it very much. What is an outrage—a genuine constitutional outrage—however, is that the Prime Minister who has the majority, or at least the control, of the other House, retains virtually sole power of appointment to it. That is a matter worth shouting about.
The red-top newspapers complain that this House is an old people’s home. They are not far wrong although they do not seem to have worked out that that is because your Lordships’ House has increasingly become a retirement home for Members of another place since the Life Peerages Act was introduced in 1958. In the old days when this House had 1,200 Members, 10% were retired Members of Parliament. Now we have 800 Members, of whom 25% are former Members of Parliament. There is nothing wrong with Members of Parliament individually—I even have a few friends who were MPs—and they are perfectly suited to the House of Commons. However, in your Lordships’ House, and in too great a number, they are an absolute menace: first, because, by their very nature, they want to do things and change things when they would be far better employed just paying attention, and, secondly because they think that being a Member of this House is a full-time job, so they turn up all day, every day and think that they ought to speak in every debate even when they have nothing original to say. That is why this House appears to the uneducated outside observer to be full to overflowing.
This House is often—erroneously in my view—referred to as a House of expertise. Of course, it is not. What it was when I first came here was a House of Members with a wide range of experience and independence of mind and attitude. That is why the Whips could not dominate it as they do the House of Commons. Where you have a group of experienced and independent-minded people, you will inevitably find that they have one or two areas of expertise, and that is what the casual observer saw and often remarked upon.
Members of Parliament by their very nature, after years of subservience to the Whip, are less comfortable with exercising their free will, which is so frowned upon at the other end of the Corridor. Their skill is not in revising legislation because, unfortunately, the House of Commons no longer deals with legislation, but rather in adversarial party politics, which is what we do not do here, or at least used not to. That is why the conduct of business has become so unruly and discourteous, aping the manners of another House.
I accept that MPs find this House more comfortable but it is not about their comfort or indeed my pleasure. It is therefore essential for the health of our system of parliamentary democracy that this House corrects and completes the reform that has led to this disastrous state of affairs. Some argue that incremental reform is better than none at all but it is clear to me that, whether deliberate or accidental, incremental reform of the type that this Bill seeks to achieve would make proper wholesale reform much less likely. That is not in the interests of this House, of Parliament or of the British people. I will therefore oppose this Bill.
Viscount Trenchard (Con)
My Lords, as an elected hereditary Peer who voted for the passage of the House of Lords Act 1999, I feel bound to oppose this Bill for the same reasons as put forward by my noble friend Lord Elton and others. I have the highest regard for the noble Lord, Lord Grocott, but regret that he insists on bringing this matter up again at this time. I repeat what I said when we last debated this matter only last December—namely, I do not believe that the public view the presence in this place of 92 Peers by succession as any more offensive than the presence of around 700 Peers who sit here by appointment. Furthermore, I do not think it is correct to argue that the hereditaries who sit in your Lordships’ House have any less legitimacy than the life Peers. It is now very competitive to enter this House if you happen to be a hereditary Peer. I think the last by-election on the Deputy Speakers’ list worked very well. Noble Lords were able to interview the candidates at a hustings before casting their votes. They certainly do not get the chance to do so in the case of Peers who are appointed to this House.
Furthermore, the hereditaries who sit in your Lordships’ House are generally younger than life Peers, at least when they take their seats. They are more geographically representative and I believe that their link with history and tradition adds to their legitimacy. It is a good thing that prime ministerial patronage and nomination by party leaders are not the only way by which people may become Members of your Lordships’ House.
Lord Pannick
Following those arguments, does the noble Viscount think that we should have more hereditary Peers?
Viscount Trenchard
My Lords, as I mentioned, I voted for the passage of the House of Lords Act as a reasonable compromise and I believe in incremental reform, but the reform agreed was that 92 hereditaries would remain pending substantive reform of your Lordships’ House, which was understood by all to mean the adoption of an elected or partially elected House.
There is one area where I would support changes to the present system of by-elections. I see no reason why Deputy Speaker by-elections are open to all Peers whereas vacancies in the party blocs are chosen only by the surviving hereditaries. I would support the widening of the franchise of all by-elections to include the life Peers in each party bloc. The noble Lord, Lord Grocott, pointed out that it may be seen as absurd to elect a legislator with an electorate of three or four and this change would correct that. It is most surprising that he did not mention the firm and binding agreement reached at the time of the passage of the House of Lords Act in 1999. If your Lordships were to agree to pass this Bill, it would be a very clear breach of that agreement.
In introducing his Bill, the noble Lord, Lord Grocott, said that nobody thought in 1999 that the by-election system would still be operating in 2017. However, nobody thought in 1999 that by 2017 no substantive reform to your Lordships’ House would have taken place. The noble Lord said that a small number of Peers had blocked the passage of this measure effectively in perpetuity. That reveals that he thinks that the present system will continue in perpetuity, and that the House as presently constituted will never be replaced by a wholly or partly elected House. He observed that if the membership of your Lordships’ House remains at 92 but the total membership is reduced to 600 as a result of the adoption of any recommendations which may be made by the Lord Speaker’s commission, it would mean that the proportion of hereditaries entitled to sit would increase from 11.5% to 15%. However, he omitted to observe that immediately after the House of Lords Act 1999, the proportion of hereditary Peers was 13.75%, and that this proportion has progressively declined as the size of your Lordships’ House has increased.
If your Lordships’ House should adopt a scheme for reducing its size to around 600, which involved the retention of a slate of Peers from which certain Members would be selected to sit and vote, I would be most happy for the 92 to remain as members of the larger slate rather than for all of them to be entitled to sit and vote. I believe that the best way to protect the reputation of the House, especially at this time, would be for the noble Lord to withdraw his Bill. I shall certainly continue to oppose its passage.
Lord Snape
My Lords, I join noble Lords on both sides of the House in congratulating my noble friend on bringing forward this Bill once again. As a personal friend of his for almost 50 years—I hope that I can refer to myself in such terms—I think that he is in grave danger of getting his fingers burned for the second time. Given the speeches we have heard from the other side of the House, it is apparent that there will be substantial opposition to the Bill, and that that will be conducted in the same deplorable way as it was a year ago.
I congratulate the noble Baroness, Lady Berridge, on her speech. I fear that she will not have endeared herself to most of her colleagues, particularly the hereditaries, but I applaud her courage none the less. I think that there are three female speakers out of 20-plus speakers in this debate, which illustrates the point she sought to make about your Lordships’ House.
I marginally commend some of the speeches made by hereditary Peers. All of them have managed to fan my fading embers of class warfare, particularly my old friend the noble Lord, Lord Trefgarne, who does this on a regular basis. They always manage to do that when they speak in your Lordships’ House. Listening to them reminds me why I joined the Labour Party all those years ago. We heard a wonderful speech from the noble Lord, Lord Mancroft, who sought to take this House back to not the last century but the one before, I would have thought. It is somewhat unwise, if I might have the temerity to say this to the noble Lord, to refer to speeches in the present-day House of Lords as predetermined, turgid and boring when you are reading every word yourself. One is inclined to think that that is indeed the pot calling the kettle black. As for the noble Viscount, Lord Trenchard, I had the privilege of hearing him speak on this matter on two occasions. Again, to proffer some advice as a former railwayman, he ought to get out more. If he spoke to one or two more people about the composition of this House, they might well edge away at best, and at worst resort to violence. So I urge him to be careful.
We are time-constrained, and much of what I wanted to say has been said. However, I return first to the noble Lord, Lord Trefgarne, who, unaccountably, failed to respond to the rather mischievous intervention from my noble friend Lord Howarth. I referred to the noble Lord, Lord Trefgarne, as an arriviste some time ago, because his hereditary title does not compare in length, for example, to that of the noble Earl, Lord Caithness. I have long since given up trying to convince the noble Earl in these debates of the sensible nature of the Bill, but I returned, more in hope than expectation, to the noble Lord, Lord Trefgarne, because he has been here a long time. He plays an important role; I have watched him going around the building on numerous occasions—a word here, an elbow there, nudging and fixing, and he does it extremely well. But it does not entitle him to permanent membership of your Lordships’ House. Nor does he justify the preposterous electoral system that has been so rightly condemned on both sides in this debate.
I do not want to write the response of the noble Lord, Lord Young, for him, but we all know what it will be. As my noble friend Lord Anderson indicated, some degree of sympathy will be expressed for the Bill. He will congratulate my noble friend Lord Grocott on his lucid and witty manner in moving it. He will say that the Government are not particularly against it— but of course they will not be for it. Of course, he is a former Chief Whip. I never attained those heights; I was, I must admit, a Whip in the other place—one of these deplorable characters so rightly condemned by the noble Lord, Lord Mancroft—but both I and he know that the advice which, as Chief Whip, he would have given to any Prime Minister when it came to Lords reform would be, “Don’t touch it with a bargepole”. If the Blair Government, with a majority of whatever it was—300—could not get rid of only 92 hereditary Peers, there is not much hope that this lot will reform your Lordships’ House given the current political situation in the other House. I am sure that in his lucid, emollient and always listenable way, the noble Lord, Lord Young, will sympathise with the Bill but will tell us that the Government cannot do it.
As for long-term reform of your Lordships’ House, the first time I heard that discussed was in a Labour Party meeting 50 years ago, and it has not been reformed very much since. I am not a gambler, but I would wager a few pounds that it will not be reformed in any significant sense in the lifetime of any of us who are participating in this debate today. So all speed to the Bill as far as my noble friend is concerned, but I fear that like the man who put the candle out twice, he will get his fingers burnt a second time.
Lord True (Con)
My Lords, I am too polite to return the noble Lord’s words to him, but his entertaining speech rather reminded me of why I joined the Conservative Party. I do have a beef, which is that the noble Lord, Lord Grocott, came first in the ballot for Private Members’ Bills and I came 60th out of 61. Therefore I am a little vexed that he has used this privilege of coming out top to rehash last year’s mashed potatoes—the Bill that failed. The garnish is different but the effect is the same. I am a member of the Procedure Committee of your Lordships’ House but I do not speak as a member. However, we might, in looking at the ballot system, see that it does not privilege someone who had a Bill the previous Session to bring it back in the following Session. Perhaps, as we have been told by many noble Lords in this debate, opportunity should be spread a little wider.
The noble Lord’s Bill has several defects. First, in my judgment—many have spoken on this—it removes the incentive for agreement on final reform that was deliberately left in the statutes of this land in 1999. The 1999 agreement secured the programme of the Labour Government, in which the noble Lord, Lord Grocott, was PPS to the Prime Minister. Perhaps he knew something about it. Under that agreement, hundreds of our Members left. However, the basis of it was that they would remain and be replaced, in the words of the noble and learned Lord, Lord Irvine of Lairg, as “a guarantee” that a final reform of the House would be agreed. That agreement was, as the noble and learned Lord said,
“binding in honour on all those”,—[Official Report, 30/3/1999; col. 207.]
who came to subscribe to it. As one who played a part in negotiating the details of it, I feel so bound and I oppose the Bill.
I am always interested to listen to my noble friend Lady D’Souza when she speaks on matters that affect the reputation of the House. However, I strongly reject her statement that this sense of honour is any sense contrived. It is not contrived, and many people hold it firmly. I also disagree with the point made by the noble Lord, Lord Pannick, which was a typical lawyer’s point—a correct point—that of course Parliament is not bound: the law can be changed by Parliament. But there is a world beyond the square mile around the Inns of Court, and in politics it is sometimes not what you can do but what you should do. This agreement should not be repudiated.
I agreed with the speech made by my noble friend Lord Cope of Berkeley, which I thought was extremely interesting, as did many others in the House, and a matter that might be looked at. The original reason for the strange colleges is because, I recall, it was pressed for by the Government. The Labour Party was concerned that Labour Peers would not be elected. That would not be the case, and it could be re-examined.
My second objection to the Bill is that it would create an all-appointed House by stealth. That has never been put before the British people at any general election this century and it should not be accomplished by a Private Member’s Bill in the Lords. Others have spoken on that. The third matter is that the Bill is partisan in its effect. It would strike disproportionately at the Conservative Party, and quite fast. Some 26 Conservative elected hereditary Peers are over 70, nine are over 75, five over 80, and five over 85. They would no longer be replaced. When I raised this with the noble Lord last year, he said that that could be dealt with by appointing another couple of dozen Conservative life Peers. That is not a tune we hear so very much from the Benches opposite, nor would it be welcomed by the House. Will the noble Baroness on the Opposition Front Bench say whether that would happen—would Labour support Conservative life Peers to replace hereditaries that went?
The final defect of the Bill is a glaring one, which is that it attacks the speck of dust—the by-election system—but spectacularly fails to tackle the most glaring defect in numbers in this House: the massive overrepresentation of Liberal Democrat Peers, who are sworn to use their unelected position to foil the will of the British people in the referendum. I know that the noble Lord, Lord Grocott, agrees with me on that. If only he had used his luck in the ballot to introduce a Bill to deal with that, they might have cheered him on in Tory Telford, where the candidate wearing the rosette of the noble Lord, Lord Rennard, lost her deposit with a reasonable 900 votes. The threat of obstructionism by those Benches over there is a major and present constitutional danger to what the people of Telford voted for by a majority of 24,000. Hereditary by-elections are not. I oppose the Bill.
Lord Tyler (LD)
My Lords, I congratulate the noble Lord, Lord Grocott, very sincerely on his persistence and on his success in the lottery—or raffle or lucky dip. Despite what the noble Lord, Lord True, has just said, it is not a ballot in the true sense; it is yet another curious anomaly that we should perhaps deal with on another occasion. I and my colleagues will be pleased to give constructive support to the Bill and, with the unusual two-year Session that we have, hope that it will make progress to the other House and achieve cross-party endorsement there.
The noble Lord gave a very clear account of the Bill’s purpose, which I do not need to repeat. However, it is surely necessary to provide some historic context to dispel some misrepresentations, some of them mentioned again today.
The invention of hereditary Peers’ by-elections was the product of the so-called Weatherill amendment in May 1999. In effect, this was grasped by the then Labour Government and the Conservative Opposition in your Lordships’ House as a short cut to try to prevent last-ditch filibustering over the former’s limited reforms of the composition of this House. It was a simple agreement between the two parties, with no involvement by the Liberal Democrats. I do not think that there was even any participation—formally, at least—by the Cross-Benchers, despite its very considerable significance for their Benches. Cynics could describe it as a two-party stitch-up.
The then Leader of the Liberal Democrat Peers, my noble friend Lord Rodgers of Quarry Bank, challenged the need for that amendment in the debate on 11 May 1999 as follows:
“There are many noble Lords who could make a valuable contribution to a post-Royal Commission House, if that turns out to be not wholly elected. But their future should be as life Peers, not as residual elected representatives of the hereditary peerage”.
Even more relevant to today’s debate, he went on to express serious scepticism about the claims that these fudged provisions would be strictly temporary. With his proverbial prescience, he said:
“The noble Lord, Lord Weatherill, referred to them as ‘temporary provisions’. The noble and learned Lord the Lord Chancellor made it plain today, using strong words, that this would last only through the transitional House and that the transitional House would be brought to an end in the next Parliament”.
I underline those words. He continued:
“However, if I were a betting man I would lay long odds that if Amendment No. 31 is carried, there will still be hereditary Peers in this House in 10 years’ time and possibly for much longer”.—[Official Report, 11/5/1999; cols. 1098-1100.]
This two-party fix was intended to last for perhaps 18 months; it is long past its sell-by date 18 years later.
I have some sympathy with the objections of some of the remaining hereditary Peers—if they do not regard it as an insult, perhaps I could refer to them as the “remainers” in this context. They were, after all, given explicit assurances by very senior government Ministers, supported by the Conservative Opposition, that this curious anomaly would stay only until the proposed full, comprehensive, democratic reform was implemented. I refer to the argument put forward, not least by my noble friend Lord Rennard and the noble Lord, Lord Pannick, about the notion of “binding” agreements being totally irrelevant. In that context, it was an intention of the then Ministers that in the following Parliament further reform would take place. It was not, in the same sense, a binding resolution on this or indeed the other House that every succeeding Parliament would have to fulfil those obligations. In that sense, I think that that “binding” suggestion was illegitimate.
However, the Blair Government failed to deliver on their various manifesto promises in that respect and, as has been mentioned, the noble Lord, Lord Grocott, was a very distinguished member of that Government. Therefore, he must also acknowledge that, if the coalition Government’s proposals of 2012 for Lords reform, backed by all parties, had been followed through, this anachronism would have been removed and there would be no necessity for his further attacks today.
Sadly, despite the best efforts of the then Sir George Young—now the noble Lord, Lord Young of Cookham —that Bill failed, even with a record 338 majority in the Commons for its Second Reading. It was not defeated, despite some post-truth claims, not least in this House. It was actually supported by majorities in all three major parties, but the Labour Front Bench decided to play silly party games with Conservative rebels, refusing to agree to any timetabling of its Committee stages.
There are some Members—and they have been vocal today—who are still clearly awaiting that wholesale reform. I have always been committed to a major reform with cross-party support, so I understand their position. However, those purist supporters who are awaiting wholesale reform, and are using that as an excuse not to make any incremental changes to the way in which this House is composed, seem to be taking a completely ludicrous position in an Alice in Wonderland world. Taking the view that maintaining this absurd anachronism helps to gain and maintain support for full democratic change is an illusion as well. I do not believe that that tactic holds water any longer.
Clearly, the overloaded agenda of Brexit ahead of us means that Parliament will not have time to process anything comparable to the cross-party proposals of 2012.
I do not believe that any tweaking, as suggested by the noble Lord, Lord Cope, would be accepted by the electorate. I do not think that the public would see that as a real improvement and I do not think that we in this House would feel comfortable with such a minor change.
However, I believe that the continuation of this now totally discredited and outdated stitch-up does nothing to enhance the reputation of the House of Lords. It is surely time for it to go. In particular, I hope that the Minister was listening very carefully to his noble friend Lady Berridge. It is a clear priority for the Government to take an initiative in this respect and give full support to the Bill proposed by the noble Lord, Lord Grocott, not least in regard to gender and ethnic equality. I support the Bill.
Baroness Hayter of Kentish Town (Lab)
For a second time, it is my pleasure to congratulate my noble friend on the Bill and to give it a very warm welcome.
Of course, I was not here and I did not vote for that deal in the last century, and I have to tell the House that I do not feel bound by it. As I said this time last year, there are hundreds of reasons for supporting this Bill, not least the hundreds of male sons of earlier honoured men who over time have taken their seats here, not because of their own attributes but because of those of their forebears. Surely in 2017 there can be no one outside of the hereditaries themselves who thinks that our legislators should be chosen by the deeds of their grandfathers, their great-grandfathers or their great-great-grandfathers—very rarely their grandmothers.
It is true that the hereditaries in the House today have shown their value, and many—probably most, if not all—could well be here as life Peers, given their own accomplishments. So this Bill is not to say farewell to them, as the noble Lord, Lord Cormack, said, but simply to say that when they leave us—by retirement or through a higher calling perhaps—they should not be replaced.
Everyone agrees that this Chamber is too big and should be reduced in size—a size which far outnumbers the democratically elected House. I say to the noble Lord, Lord True, that the recent flood of Conservatives who have already been put here more than makes good for any fall-off there may be if the hereditaries are not replaced. However, I am grateful to him for confessing that it is the Conservative interest, not democracy, that leads some to resist the Bill.
I also say to the noble Lord, Lord Mancroft, that I accept what he said about the independence and expertise of your Lordships’ House, but surely he should be arguing for more Members of the Cross Benches and fewer of the political appointments, rather than continuing to appoint Peers by who their father, grandfather or whatever was.
So surely it is time to take forward this very modest measure. My noble friend is making only a very slow and slight attempt to reduce our numbers, but it is surely right to do that.
It is true that we would prefer greater changes, discussed by a constitutional convention rather than in piecemeal measures, but in the absence of that approach, surely this Bill is appropriate. It is tidy, measured and reasonable and it might even be well drafted.
The noble Lord, Lord Hamilton, who I think is not in his place, asked whether the whim of the Prime Minister to appoint us is better than hereditary by-elections. But I have to say: we are an appointed House. That was probably the whim of a former Prime Minister who first appointed the forebears of the hereditaries who are here today. I hesitate to say this in the presence of one of the Bishops who is a Member of this House, but I do not think that those Peers were touched by God to be here. It was the whim of the Prime Minister of the day who appointed them. So, in that sense, it is an appointed House.
Lord Elton
Does the noble Baroness subscribe to the view of the noble Lord, Lord Pannick, that our births were accidental, in which case it is not a matter of appointment but of chance?
Baroness Hayter of Kentish Town
Well, we are all here by that way.
This is an appointed House: it just depends on the century in which the Prime Minister made the appointment.
It is absolutely clear that those of us who are here should bring to the House our own attributes and experience rather than those of our ancestors, proud though I am of my grandfather who was a miner and my other grandfather who was a baker. Their own geographical spread and attributes contributed to this country. But I should be here not because of them—and I do not believe that it is—but because of what I hope I have done by myself.
As a number of noble Lords have said, if we are to earn the respect of the public for our work, having just 16 people electing someone who is perhaps 12th in line to their title to sit in this House, is not the PR that we would like for the work that we do.
Lord Forsyth of Drumlean (Con)
Can the noble Baroness deal with the point made by my noble friend Lord True? Should this Bill go through, will the Opposition recognise the effect that that would have on the political balance and therefore be prepared to see those hereditaries appointed as Conservatives in order to maintain that balance? If she gave that undertaking, it would make it much easier for some of us.
Baroness Hayter of Kentish Town
I have answered that. I said a few moments ago that it has already been done because of the number of new Peers that David Cameron appointed. As Prime Minister he appointed more new Peers than the previous five Prime Ministers did in total. Virtually all of them were appointed to that side of the House, and we have had one. So, in a sense, I have already answered the point—because it has already happened.
Of the 32 by-elections that have taken place, which the noble Lord, Lord Pannick, mentioned, the total number of votes cast was just under 6,000. That is under 200 votes per seat. All 32 Members elected were white men, as noted by the noble Lord, Lord Pannick, and the noble Baroness, Lady Berridge. The most significant contribution today was the challenge to the Government that, because of their broader remit, it is part of their responsibility to do something about this. That is a challenge that we wholeheartedly endorse.
We wish the Bill well. Last year, the Government used the slightly weasel words that they were sympathetic to any reform but that it should only be part of a broader review. But as the noble Lord, Lord Tyler, said, because of Brexit we will have very little time to do very much more, and the result of the election removes any such possibility. So we should accept this modest, incremental and reasonable Bill.
I am grateful for the last intervention because of the acknowledgement that it is the Conservatives who are most worried about this because they will lose some of their seats, which I do not think we have heard before. But change will be very gradual. I look round the Chamber and see some of the hereditary Peers who I am sure will have many more years with us, and we look forward to their contributions. But the Minister must rise to the challenge of his noble friend Lady Berridge. This matter is not simply for this House but for the Government to see whether they want to continue a system where white men have a privileged way of finding their way into the Parliament of this country.
Lord Young of Cookham (Con)
My Lords, it is good to start this season of Private Members’ Bills with a traditional number—one that we are all familiar with. I start by thanking the noble Lord, Lord Grocott, for his rendition of it today. The noble Lord has consistently shown a passionate commitment to this issue which is admired, even by those who, as we have heard this morning, are in disagreement with him. Before the noble Lord sums up the debate, I will try to respond to some of the points made and questions raised from the Government’s perspective, and am grateful to all who have taken part.
The Government are committed to ensuring that this House continues to fulfil its constitutional role as a revising and scrutinising Chamber, a role that it carries out so effectively. As a newcomer to your Lordships’ House and a migrant from the other place—and therefore to be regarded with some suspicion by my noble friend Lord Mancroft—I am even more impressed than I was before at the way this House discharges its responsibilities, scrutinising legislation and holding Government to account, while respecting the primacy of the other place. As a departmental Minister answering questions in another place, I would reckon to know more about the subject in question than my interrogators. In your Lordships’ House, with its wealth of expertise, it is exactly the opposite, with a dramatic reversal of the terms of trade at the Dispatch Box. The Government’s position on Lords reform generally was set out in their manifesto. We do not consider comprehensive reform of this House to be a priority during this Parliament, and I will return in a moment to the question whether this Bill is comprehensive.
As noble Lords know only too well, the Bill before us today seeks to end the practice of hereditary by-elections which began under the Labour Government’s reforms of 1999, when the majority of the hereditary Peers were removed. Since then, as we have heard today, there have been numerous proposals to end this practice. Indeed, the Labour Government never intended any by-elections to occur. I recall, as shadow Leader in another place, being assured that elections to a reformed upper House with no hereditaries would take place before the 2001 election. The Wakeham commission, as part of its comprehensive package of reform, recommended that excepted hereditary Peers should cease to be Members of this House, and the Labour Government repeated that proposal in numerous White Papers.
As we have heard, the Constitutional Reform and Governance Act 2010 tried, and failed, to remove by-elections. In the subsequent Parliament, I was the Minister in charge of the coalition Government’s House of Lords Reform Bill, which would also have removed hereditary Peers altogether, and which failed to make progress for the reasons set out by the noble Lord, Lord Tyler. We also had the numerous efforts by noble Lords through Private Members’ Bills to end the by-elections, including Lord Weatherill, Lord Avebury, the noble Lord, Lord Steel, the noble Baroness, Lady Hayman, and now, of course, the noble Lord, Lord Grocott. But thus far, none of these proposals has succeeded in achieving a consensus across this House. Against this background of collective failure of Governments and Back-Benchers, one can but admire the courage of the noble Lord in having another crack.
It is clear from today’s debate that many noble Lords here today wish to see the end of by-elections. Those who have been following the debate can see the balance of views. I was particularly struck by the point made by my noble friend Lady Berridge, and a consequence of the current arrangement is a system that is very difficult to defend in equality terms. As I think my noble friend explained, there is in fact an exemption from the Equality Act 2010 for this arrangement, but that does not make it any easier to defend. But while the balance of argument in terms of numbers has been in favour of the Bill, we have also heard some strongly held beliefs that while the issue of comprehensive reform remains unsettled, the excepted hereditary Peers should remain—an argument put forward by my noble friends Lord Trefgarne and Lord Caithness.
We continue to support incremental reforms that achieve this and command consensus across the House, and I shall return in a moment to the question of whether the Bill is incremental. For example, as evidence of our support for incremental reforms under the terms of the House of Lords Reform Act 2014, 68 Members of your Lordships’ House have retired and a further six have ceased to be Members by virtue of their non-attendance. I had the privilege of steering through the other place the House of Lords (Expulsion and Suspension) Act 2015, which provides this House with a power to expel Members in cases of serious misconduct. Those changes have been important in gradually changing the culture of the House. Moreover, looking ahead, it is in that spirit that we should proceed.
The Bill before us today makes provision to stop any hereditary Peers from taking a seat in this House in the future, while the existing hereditaries will remain. Over time, as has been said by the noble Earl, Lord Erroll, this House would de facto become an appointed Chamber save for the Lords Spiritual. Some noble Lords have argued that this is not incremental as we move to that position. My noble friend Lord True also pointed out that over time, the Bill would affect the party balance in the House as one party has significantly more hereditary Peers than the others. This consequence could be avoided, as my noble friend Lord Forsyth suggested, by appointing Peers to compensate, but that would negate one of the objectives of the Bill, which is to reduce our numbers.
I am most grateful, as I think are other noble Lords, for the intervention of my noble friend Lord Cope. He is absolutely right to point out that it is our Standing Orders rather than primary legislation which make provision for the by-elections, and that we do not need primary legislation to change them. A number of noble Lords, including my noble friend Lord Cormack and the noble Lord, Lord Pannick, suggested that we might look at that depending on the progress of this Bill. The opening speech of the noble Lord, Lord Grocott, on the process of by-elections, could almost have come out of the Gilbert and Sullivan opera, “Iolanthe”. However, some of the suggestions put forward during this debate for extending the franchise might overcome the size of the electorate.
In passing, perhaps I may touch on a point brought up by the noble Baroness, Lady D’Souza, and others about the role played by hereditary Peers in the work of the House. The vast majority attend regularly and participate in our proceedings. Today, nearly half of those who are Members of this House by virtue of hereditary peerage are active as Government Ministers or members of committees. Looking at my own party, the ministerial ranks are fortified both by the initial 92 hereditaries such as my noble friend Lord Courtown and by by-election victors such as my noble friend Lord Younger.
I was also struck by the argument put forward by a number of noble Lords that the 92 were the grit in the oyster, and that those who are elected feel an obligation to stay until the comprehensive reform that was part of the initial deal is secured. My noble friends Lord Trenchard, Lord Elton and Lord Mancroft, and the noble Earl, Lord Erroll, all made the point that they feel an obligation to honour the agreement that was entered into and which was discussed at some length during the debate.
Since we last debated this subject, there has been an important initiative which to my mind constitutes a decisive reason for pausing this Bill, regardless of one’s views as to whether it is incremental or comprehensive. I would say to the noble Lord, Lord Anderson, that I wrote that sentence myself; I did not take it out of a Civil Service file. But I was struck by a point made by my noble friend Lord Brabazon that I will come on to in a moment. During the last Parliament the Lord Speaker established a cross-party committee specifically to address the size of the Lords, chaired by the noble Lord, Lord Burns. I would like to dissociate myself from the remarks made by the noble Lord, Lord Foulkes, who cast doubt on the suitability of the noble Lord, Lord Burns, as the chairman of that committee. The noble Lord, Lord Burns, has already done a great service to this House by chairing a committee in which it has been difficult to come to a conclusion. Noble Lords may remember the Trade Union Political Funds and Political Party Funding Committee which was chaired by the noble Lord, Lord Burns. It enabled us to make progress with that legislation. I should say to the House that I would rather that the noble Lord, Lord Burns, was chairing this committee than the noble Lord, Lord Foulkes.
Lord Young of Cookham
The committee has been asked to examine practical and politically viable options for reducing the size of this House, so that progress might be made on the issue, and to provide advice to the Lord Speaker on the potential next steps. I am sure that within the remit was the issue of the hereditaries; it certainly was if the noble Lord, Lord Grocott, gave evidence. The noble Lord, Lord Burns, and the committee have since worked tirelessly on this issue, looking at reform measures to reduce our size as a whole. My noble friend Lord Brabazon reminded us that this was a priority. The committee is going to report in October and the Government look forward to its recommendations. I have no idea what they are going to be, but it cannot be right, in advance of publication and debate on those proposals, to single out one possible element which may or may not be in the recommendations and launch it down the legislative slipway. Consideration of this Bill is therefore premature by singling out as it does one potential reform which does little to address the size of the House. We should await the findings of the committee rather than seeking to pre-empt them, and proceed on that basis.
On a more consensual note, I agree with what the noble Lord, Lord Grocott, said in his peroration. We should sort this out ourselves before someone else sorts it out for us. I pay tribute to the noble Lord for pursuing this important constitutional matter and to those here today for their insightful contributions to the debate. Finally, I would urge noble Lords to engage with the work of the noble Lord, Lord Burns, and his committee to see if we can find a consensus on the best way forward, because ultimately it should be for this House, working in a spirit of partnership, to address the issue.
Lord Grocott
My Lords, I am grateful to all noble Lords who have contributed to the debate and massively grateful to those who have supported my position.
I do not know whether to take the speech of the noble Lord, Lord Young, as a clear rejection or as a possible consideration at a later date, and I am sure that that degree of ambiguity was fully intended by him in his remarks. However, I just want to emphasise that this Bill is not about reducing the size of the House. That would be a small net benefit of this Bill, but that is certainly not its objective—if it was, it would be a pretty poor tool.
In the 17 or 18 years since the passage of the original Bill, 32 new hereditary Peers have arrived, not by any means all of whom have replaced Conservative Peers. The inference of the contribution made by the noble Lord, Lord True, was that this Bill would somehow lead to a massacre of Conservative Peers. It would be a very slow process of attrition and I think it would be about another 40 years before the job was done which, having myself been here for a little while now, is about the pace at which this House likes to move.
What has been noticeable about the debate, and I shall read it carefully to make sure that my initial impressions are correct, is that the challenge that I put out during my opening speech, which was to hear some positive arguments for the by-elections in terms of how they enhance the House, has not been answered. Of course good people have come here by means of the by-elections—that is not in dispute any more than is the fact that good Bishops have come, as well as good life Peers. But as for by-elections being a mechanism for putting people into a House of Parliament in the 21st century, no one has offered any positive arguments in favour of retaining the system apart from, I think, the noble Lord, Lord Mancroft, who was clearly nostalgic. I understand his nostalgia for a time when virtually everyone here was hereditary and of course most of them voted Conservative. I can understand why that would appeal to him. He described some wonderful debates to us.
Lord Mancroft
My Lords, I was not displaying nostalgia; I was reflecting upon the very real fact that the nature of the way the hereditary Peers operated was that, because they were hereditary, they had a degree of independence which was extremely desirable. I was reflecting on that point and it is not a nostalgic one at all. The fact is that the composition of this House today has by its very nature lost to a significant degree its independence from the existing political establishment, to the detriment of both this House and of Parliament.
Lord Grocott
I advise the noble Lord to stop digging. This wondrous independence and spirit of quality and intellectual debate invariably resulted in a House that always supported Conservative Governments and caused no end of trouble to Labour Governments. I will leave that one there.
I could not improve on my good friend Lord Snape. He has lost none of it in 50 years; he really can turn it on when he needs to. I was always deeply respectful of him. He reports the fact that I was his Chief Whip, but he was my Whip in the 1970s, when he reportedly put next to my name “WWWW”, which meant, “Works well when watched”.
Lord Snape
Will my noble friend accept the perception of my views at that time? He has come along very well since.
Lord Grocott
I saw no arguments in favour of the by-elections, apart from the one that I really want to put to rest now, which the noble Lord, Lord Trefgarne, repeats time and again about this compromise reached in 1999 which resulted in the 92 hereditary Peers remaining. The noble Lord, Lord True, referred to the fact that I was involved to some extent in that because I was working in Downing Street at the time. I remind him of what I still feel was breath-taking about what happened then. A Labour Government, elected on the clearest possible manifesto commitment to end the hereditary principle as a basis for being in the second Chamber—a Labour Government with a record post-war majority of more than 150—brought that proposal to this House. It was made clear in this House by the noble Lord, Lord Trefgarne, and others that the Bill, with a huge majority and manifesto commitment, would not be allowed to pass unless major concessions were made, of which these 92 Peers are the result. That was not normal parliamentary procedure resulting in this binding agreement; it was blackmail. That is the only argument that has been put forward to continue with these by-elections. It is a history lesson that ought to be written according to what actually happened.
The only other argument I have picked up is that, somehow or other, the hereditary Peers here provide a constant incentive towards swift movement towards a fully comprehensive elected House. The noble Lord, Lord Young, is in a better position than me because he was there longer: there were loads of debates in the other place on an elected House, but I never heard anyone say that we need to do this because the noble Lords, Lord Trefgarne and Lord Elton, or the noble Earl, Lord Caithness, are insisting that it happens. By definition it simply has not worked. Those Members who want a fully elected House, of which I am not one, have not been able for various reasons to deliver it, so this incentive that allegedly is there clearly is not working. We should remember that as well.
The only really helpful, constructive attempt to move forward on this, other than what I think is the only sensible way to proceed, which is my Bill unamended—although I always listen to what the noble Lords, Lord Cope and Lord Cormack, and others, have to say—is that there should be an election of the whole House whenever a vacancy occurs rather than these absurd party by-elections with minuscule electorates. I partly answered it in my opening remarks. Even when that happens, less than half the House participates. I always regarded it as a waste of time and I am clearly not the only one. That does not enhance the quality of the democracy, and—this is an even more substantial point made brilliantly by the noble Baroness, Lady Berridge—it does not alter the fundamental flaw that, on the register of hereditary Peers as it stands, there are 198 names, 197 of whom are men. Changing the Standing Orders and having an electorate comprising the whole House would not alter that fundamental problem any more than it would alter the fundamental problem of why on earth the only people entitled to stand should be the heirs of the noble Earl, Lord Caithness, or the noble Lord, Lord Trefgarne, although we hope their heirs do not materialise for a long period yet in their new titles. Why should their heirs have an assisted places scheme to get into the House of Lords?
We all think our arguments are pretty convincing. I think the argument I and many of my noble friends put forward are absolutely overwhelming, so let us get on with it.
House of Lords (Hereditary Peers) (Abolition of By-Elections) Bill [HL]
Friday 7th September 2018
(6 years, 3 months ago)
Lords ChamberRead Full debate House of Lords (Hereditary Peers) (Abolition of By-Elections) Bill [HL] 2017-19 Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: HL Bill 2-II Second marshalled list for Committee (PDF) - (5 Sep 2018)
11:27 - Division on Amendment 11 - Ayes: 23 / Noes: 117 - Amendment 11 disagreed.
11:41 - Division on Amendment 15 - Ayes: 19 / Noes: 107 - Amendment 15 disagreed.
13:05 - Division on Amendment 33A - Ayes: 21 / Noes: 73 - Amendment 33A disagreed.
Lord Trefgarne
At end insert “but regrets that the bill has not been brought forward by the Government, in the light of its constitutional importance; and that the bill proposes piecemeal, rather than wholesale, reform of the membership of the House”.
Lord Trefgarne (Con)
My Lords, I shall not detain your Lordships for more than a few moments. I am not opposed to House of Lords reform as a matter of principle. Indeed, back in 2012, when the Government introduced a reform Bill in the other place, I sat on the pre-legislative scrutiny committee and was not opposed to that in principle at all, but it did not get very far and failed in the House of Commons. Since then, here in your Lordships’ House, we have listened to the recommendations of the noble Lord, Lord Burns, to which I am not opposed either, but none of these considerations is taken into account in the Bill proposed by the noble Lord, Lord Grocott, which contravenes the undertakings given in 1999. Against that background, I beg to move the amendment.
Lord Northbrook (Con)
My Lords, I apologise to the House for having been unable to take part in Second Reading and the first day of Committee. I declare an interest as a hereditary Peer.
I agree with my noble friend Lord Trefgarne that important constitutional legislation should be brought forward by the Government rather than by a Private Member’s Bill. In June 1999, my noble friend Lord Denham asked the following Question of the Lord Chancellor:
“Just suppose that that House goes on for a very long time and the party opposite get fed up with it. If it wanted to get rid of those 92 before stage two came, and it hit on the idea of getting rid of them by giving them all life peerages … I believe that it would be a breach of the Weatherill agreement. Does the noble and learned Lord agree?”
The Labour Lord Chancellor, the noble and learned Lord, Lord Irvine of Lairg, said in reply that,
“I say quite clearly that … the position of the excepted Peers shall be addressed in phase two reform legislation”.—[Official Report, 22/6/1999; cols. 798-800.]
Nothing could be clearer than that. That is why I believe that this Bill indeed breaches the Weatherill agreement and the House of Lords Act 1999.
I remind the Committee of the importance of the Labour Lord Chancellor’s words in March 1999, when he said:
“The amendment reflects a compromise … between Privy Councillors on Privy Council terms and binding in honour on all those who have come to give it their assent”.—[Official Report, 30/3/1999; col. 207.]
As the noble Lord, Lord Grocott, was Tony Blair’s Parliamentary Private Secretary at the time, he must have been well aware of this. To the hereditary peerage, it was a vital part of the 1999 Act and a condition for letting it have satisfactory progress through the House.
I cannot understand why this area of the House needs reform when the by-elections have produced such capable replacements for the 90 such as the noble Lords, Lord Grantchester and Lord De Mauley, the noble Earl, Lord Cathcart, and the noble Viscount, Lord Younger of Leckie, all of whom are or have been on the Front Bench of their respective parties. It would seem more urgent to reform the life Peers system, which the Burns report proposes. The hereditary Peers are a strong link with the past, a thread that goes back to the 14th century. Until relatively recently, in House of Lords terms, the House was entirely hereditary. By-elections provide a way into this House that is not dependent on prime ministerial patronage.
Lord Blunkett (Lab)
My Lords, to address the issue that has been put before us and to avoid prevarication, there is a new phase 2: it is Burns. There may be a phase 3—who knows? If a Jeremy Corbyn-led Government were elected, there would a phase 3 which might disturb the Benches opposite slightly more than not having by-elections for hereditary Peers. Burns is a phase 2, and it has consequences. Unless the issue of hereditary Peers and by-elections is addressed in the way that my noble friend Lord Grocott proposes, it is not my party or the broader opposition who will find themselves in difficulty, it will be the Conservative Benches. I would like them to reflect on what would happen if we implemented Burns and this House were decanted in six years’ time, with the two things coming together, and the Conservatives were faced with hanging on to their hereditary Peers while losing their life Peers.
Lord Brown of Eaton-under-Heywood (CB)
My Lords, I am a great admirer of our hereditaries. Man for man, pace my noble friend Lady Mar, they are at least a match for those like me who have been appointed here. They are a match in their commitment, their contributions to the House, their expertise and, as the noble Lord, Lord Mancroft, pointed out at Second Reading, their independence of mind and spirit.
Like many others here, I would welcome wider improvements in our appointments system, with a larger role not least for the noble Lord, Lord Kakkar, and his excellent Lords Appointments Commission. In the meantime, I strongly support this Bill, which would go some considerable distance to enhancing the reputation and image of this House.
Therefore, far from supporting the amendment in the name of the noble Lord, Lord Trefgarne, I see positive merit in this reform being achieved by way of a Private Member’s Bill rather than by government. It demonstrates our own desire and commitment to achieving reforms for ourselves. Consistently with that goes the report of my noble friend Lord Burns, which again is our own attempt to modernise and reform this House. I cannot resist harking back to the words of the noble Lord, Lord Grocott, in closing the Second Reading debate. He asked why hereditaries should,
“have an assisted places scheme to get into the House of Lords?”—[Official Report, 8/9/17; col. 2186.]
There has been much criticism throughout these debates of hereditaries being, virtually without exception, male and white. As the noble Baroness, Lady Berridge, put it at Second Reading, the existing system is, “gender and racially biased”. Surely altogether more fundamentally objectionable even than those criticisms is the fact that this system favours a very tiny, and—I suppose I had better put this in quotes—“well born” number within a wider population of millions. A number of those millions may have even more to contribute to our House than the hereditaries—the few future hereditaries who, if the Bill passes, will not join us. In short, why should they have assisted places? Should we not modernise and reform?
Lord Wakeham (Con)
My Lords, I shall say just a few words at this stage. First, I must declare an interest: I was chairman of a royal commission some years ago that produced a number of proposals for reform of the House of Lords, and I have to say to the noble Lord, Lord Grocott, that it did not include by-elections for Peers. I am sympathetic to what he wants to do; my concern is about the timing. Since that report, we have had a Bill from the Labour Government, from Jack Straw, which failed to get through. We had a Bill from the coalition parties which failed to get through. Some of us felt that there was very little likelihood of any Government bringing forward another Bill to reform the House of Lords.
Lord Young of Cookham (Con)
My Lords, I intervene briefly to set out the Government’s views on the Bill in general and on the amendments in particular. While we have reservations about the Bill, it is difficult, as has just been said by my noble friend, to reconcile it with the undertakings given at the time of the abolition Bill. Despite the eloquence of the noble Lord, Lord Grocott, he has not achieved consensus on his measure. Despite that, we have no plans to block the Bill or impede its progress, which is why I may not intervene on every one of the subsequent amendments. I say in passing that most Private Member’s Bills do not get this second bite at the Committee cherry.
On the amendments we are debating, I gently point out that previous Labour Governments never introduced the comprehensive reform called for in both amendments, but that the coalition Government did. It got a large majority at Second Reading in the other place, but the Bill then stalled because there was no agreement on the programme Motion, and without that the Bill was dead. As the then Leader of the other place I accept some responsibility for the failure to get my colleagues to agree to that Motion, but I gently point out that had other parties agreed to it—and other parties were committed to the policy—the Bill would have proceeded.
Once bitten, twice shy. We made it clear in our manifesto last year that such legislation was not a priority. Indeed, why risk wasting a large amount of time on a measure that had so recently failed? Instead, we said we would support incremental reforms that command consensus across the House. We can argue as to what is “incremental” and what is “consensual”. I note that at Second Reading there were 13 speeches in favour of the Bill and eight against, and that on our first day in Committee a number of my noble friends made it clear that this is a measure about which they feel so strongly that they are prepared to do whatever is necessary to delay progress, notwithstanding the fact that the Bill has no prospect of getting through the other place and on to the statute book.
Looking at the amendments today, concerns about the Bill are not confined to my party. The Government’s view is that the energies of the House may be better employed in implementing the recommendations of the Burns report, where all parties are committed to reducing our numbers. Burns was silent on the question of these by-elections, although it noted that the proportion of hereditary peers in a reduced House would increase if no action were taken, a point made by the noble Lord, Lord Blunkett, and that by-election winners would pre-empt the appointments that would otherwise be made, impacting on my party and the Cross Benches.
Lord Cormack (Con)
May we infer from what my noble friend has just said—I hope we can—that Burns will be given a fair wind so long as this House demonstrates again its overwhelming support for Burns?
Lord Young of Cookham
Noble Lords demonstrated their support for Burns in the debate that took place last December. It was also confirmed in a debate that took place a year earlier, which I think my noble friend introduced, where the House voted to take steps to reduce its size. As my noble friend knows, the Burns committee has been reconvened and I hope that progress can be made.
The Prime Minister has maintained her policy of restraint so far as new appointments are concerned, with the lowest number of dissolution honours since 1979 and a smaller House than when she took office. Having restated the Government’s position, I propose to listen with interest and patience to the exchanges on the amendments, intervening only when absolutely necessary or when provoked beyond endurance.
Baroness Hayter of Kentish Town (Lab)
My Lords, we will try not to provoke beyond endurance. I regret this amendment to the Motion that we should go into Committee. In a sense, it is another Second Reading and that really is not the way that we deal with Bills. I will say only two things. First, 1999 is nearly 20 years ago; in that time, much has happened and much is happening now. Just down the corridor they are reducing the number of MPs by 50, as if that has no impact on the size of the Government or of this House. It seems extraordinary that when the Government are putting a lot of pressure into doing that, they now sit and say that they will do nothing on this issue. That is regrettable. It is something that we could do.
Secondly, I think that the noble Lord, Lord Wakeham, is wrong to say that it is not for us to do. In the very wise words of the noble and learned Lord, Lord Brown, this is our way of showing that it is for this House to begin to do something. If we take a lead on this, it will help to give a fair wind to Burns. If we cannot even do this minor thing—this just puts more men into this House; a very small number—and begin to reduce the numbers, it does not seem to me that we are very interested in bringing this House into the current century.
Lord Adonis (Lab)
My noble friend is setting out the position of our party but the Labour Party manifesto at the last election, which both she and I supported, said:
“Our fundamental belief is that the Second Chamber should be democratically elected”.
Can she explain how this Bill advances that cause?
Baroness Hayter of Kentish Town
This Bill is about something much more immediate. We are not actually in government. It is very nice to say, “If we want to be in government, we could do something about this House”, but we are not there at the moment. The House can do something at the moment with this Bill. It is a very modest proposal and I call on all noble Lords to move with speed today and get the Bill through.
The Earl of Erroll (CB)
My Lords, I support this regret Motion and I will support the Motion of the noble Lord, Lord Adonis, as well because it is about democracy. If the other place is reduced by 50 people, I would point out that the proportion of Ministers who are heads of the Executive’s departments will increase in proportion to the number of Back-Bench MPs. The challenge comes because Parliament is here to control the Executive. The danger in the Commons is that if there are too many Ministers who see themselves as more powerful, yet are circumscribed in what they can join in on as Ministers, that weakens parliamentary scrutiny of the Executive. Therefore, the Bill is extremely dangerous because it will reduce the poison pill—us, the hereditaries—but not incentivise further democratic reform, which I have always supported. Both regret Motions are valid. It cannot be piecemeal because once we go, there will not be further reform. The noble Lord, Lord Adonis, is therefore absolutely right, apart from his point about moving Parliaments backwards and forwards, which does not work very well with Strasbourg. Apart from that, the democratic effect is vital. If your Lordships really think that there will be further reform if you allow this Bill through, I think that is charmingly naive.
Lord Lea of Crondall (Lab)
My Lords, I have heard some convoluted arguments in my life but we are getting into near-nonsense territory. I ask the House to consider whether the noble Lord, Lord Wakeham, for whom the whole House has the greatest respect, can really sustain the argument—I hope he will correct me if I quote him incorrectly—that his fundamental opposition is to a principle not being sustained by this House if we wish to act by legislation, when this House has always said that it would act by self-regulation. That sounds fine but I ask the House to consider how this could be done by self-regulation. I happened to be here just in time for the 1999 Bill. At that time, it was clear that that reform had to be done by legislation. Am I right or am I wrong?
Lord Rennard (LD)
My Lords, the Bill of the noble Lord, Lord Grocott, has full support from these Benches. The principle is entirely right. It is very important that we improve the reputation of this House by ending what is considered to be a farcical process of continuing to conduct hereditary by-elections. The Burns report has been referred to several times already. The Bill would actually assist the process of bringing forward Burns, which will face some problems if we do not bring an end to the hereditary by-elections because of the issue that has been raised about having a higher proportion of hereditary Peers in the House, unless we do something to stop them.
There is nothing with which I disagree in the regret Motion of the noble Lord, Lord Trefgarne. I recall that in 2010 the then Labour Government, in their Constitutional Reform and Governance Bill, brought forward the abolition of hereditary by-elections and received majority support in the House of Commons. One reason why the Bill of the noble Lord, Lord Grocott, should be approved is to allow the Commons to vote on the issue; if we do not approve it, the Commons will not have that say. That being said, in my view the regret Motion of the noble Lord, Lord Trefgarne, adds nothing to the debate. There is nothing with which I disagree but it takes up precious time and encourages the perception that there is a filibuster trying to prevent the Bill being approved. The filibuster itself brings the House into disrepute. That is enough said; I urge Members of the House to say no more than necessary in order to move on with the business, approve the Bill and discard what I consider to be irrelevant regret Motions.
Viscount Waverley (CB)
My Lords, the time for practicalities has arrived. Without wishing to incur the wrath of those who remain, those in line and those who kindly enable me to stay on, the time has come to recognise that if a strategy manifestly will not deliver, dithering must end. However, I wish to counsel against endless new appointments until the whole question of this second Chamber is satisfactorily resolved—the noble and learned Lord, Lord Brown, made this point earlier. At this stage, matters relating to Burns or any other way in which we can move on with this whole question must surely be taken. Why not today?
Lord Elton (Con)
My Lords, the Burns report is a question which is not before you. This is simply not a fatal Motion. It will not stop the progress of the Bill, on which there are mixed views among us. It merely expresses the opinion that this job ought to be done by central government. With that proposition I entirely agree, for reasons which will no doubt be extended later in the debate. The question is simply whether we can say to Her Majesty’s Government with a resounding voice—in unison, I hope—that they ought to get on with this. That will then be in their ears when they come to look again at Burns.
Lord Shinkwin (Con)
My Lords, I have neither an interest to protect nor an axe to grind but I feel we should be clear: this is not about reducing the size of your Lordships’ House. Some may say that the hereditary principle is out of date. But surely it is the politics of envy which is outdated, not the noble principle of public service, handed down through the generations. A duty to serve in your Lordships’ House should never be regarded as an anachronism.
Were this Bill to be passed, there would be no going back. That would be it. We would not be ending a chapter of our history so much as turning our back on it and on the golden thread that runs through it: continuity and the stability that flows from that. Yes, injustice did accompany excessive power and the abuse of privilege in the past. But are we seriously saying that that is happening now among the 92 noble Lords who are Members of your Lordships’ House by virtue of inheriting their title, or that it would be the case if their heirs did so?
Lord Desai (Lab)
My Lords, the noble Lord, Lord Shinkwin, has really raised quite a large issue for what the Bill proposes, which is a quite a small but important reform. Only by-elections would be removed, not all the hereditary Peers—I wish it were so, but that is another story. There can be no envy on our part because we will never become hereditary Peers nor will we qualify to run in a by-election. We have no capacity to be envious of what is happening. We are just troubled about the anomaly and the insult to democracy that this procedure involves. As to the noble Lord, Lord Northbrook, saying that a solemn promise was made, we have a very simple constitutional tradition: a Parliament is not bound by what a previous Parliament has done. If we had not continually revolutionised institutions by due process, we would not be where we are. We would have long ago been destroyed like the French monarchy was destroyed.
Lord Cormack
My Lords, I speak as a fervent monarchist and as one who accepts a little of what my noble friend Lord Shinkwin said, but let me just remind him that if this Bill is passed, and I hope it will be, there would be two hereditary Peers: the hereditary officers of state, namely the Earl Marshal and the Lord Great Chamberlain. They will be able to remain to fulfil their ceremonial function because when 92 was decided upon it was in fact 90 plus two. The only two true hereditary Peers who are succeeded by their sons, or daughters as it may be in the future, are in fact the Lord Great Chamberlain and the Earl Marshal. For the 90, if a Peer dies, his son or daughter could indeed be elected to succeed him, but the odds against that are fairly great.
I believe that what the noble Lord, Lord Grocott, is proposing is sensible and reasonable and I believe that my noble friend Lord Wakeham, whom we all hold in genuine high regard, should not worry about this being incompatible with Burns. The noble Lord, Lord Burns, has made it plain that if the reforms which he and his committee advocate come to pass, this issue will have to be addressed, as will the issue of the number of Bishops because of the proportion of the new House that they would represent. By taking this modest step, which removes no one from your Lordships’ House but merely closes one means of entry to your Lordships’ House, we would be demonstrating that we are indeed absolutely dedicated to incremental reform.
If one looks back at the various attempts to reform your Lordships’ House, incremental reform is really the only way forward. I saw only yesterday—
Lord Cormack
That is a double temptation. I will give way to the noble Baroness, Lady McIntosh. Oh, as she is not getting to her feet, I shall continue.
Baroness McIntosh of Hudnall
I imagined that the noble Lord was sitting down and I was going to make a separate point, so will he please continue?
Lord Cormack
I was just going to make one final point, and it is this. Only this morning, I was sent a cutting from the Evening Standard from November 1932. The Marquess of Salisbury was proposing major reform to your Lordships’ House. The size was to be reduced from 759 to 300, there were to be 150 hereditary Peers elected by themselves, the other 150 were to be indirectly elected by some other means and women were to be admitted for the first time. That was 1932. It was not until 1958 that women were first admitted to your Lordships’ House. What we have seen is that incremental reform has worked and wholesale reform has not. This is incremental. I hope it will command the support it deserves.
Baroness McIntosh of Hudnall
My Lords, I shall briefly echo the comments made by my noble friend Lady Hayter from the Front Bench. I respectfully say to the noble Lord, Lord Trefgarne, and those who support him that it is quite difficult for some of us to understand what we are doing here. This House agreed that this Bill should have a Second Reading and that it should be committed to a Committee of the Whole House, and it has already had a substantial element of Committee scrutiny. It is really difficult to see what purpose is being served by the debate we are now having, in which the substantive issues from Second Reading are being reintroduced, other than to delay the progress of the Bill. I hope that we can bring this debate to a swift conclusion and move on with the Committee stage.
Lord True (Con)
Those strictures of course apply to the noble Baroness’s noble friend the noble Lord, Lord Adonis, as well, who has perfectly legitimately laid a Motion before your Lordships. I am never popular on my side of the House when I say this, but I agree with the spirit of that Motion and express some sympathy. I agree with some of the sentiments expressed, and I think we should be dealing with amendments as much as we can. I reject the charge of filibuster, particularly when it comes from those Benches that we have had to listen to for day after day filibustering on the question of Brexit.
I agree in principle with what my noble friend Lord Cormack says about incremental reform, but where is the incremental reform on the Liberal Democrat Benches? We introduced provision for retirement, and when I looked at the figures today I noted that despite the retirement provisions being in place for months there are still 98 Members on the Liberal Democrat Benches. They are not stampeding for the exit. There is no incremental reform there. There is no increment at all. I think that those who do not partake in the spirit of reform should be the last to lecture the House on the subject.
There is the question of proportion, which was referred to by my noble friend Lord Cormack. The reality has been alluded to briefly and is that the effect of this measure, if your Lordships pass it, is over time substantially to change the proportions within the House. It has been argued by others that we need to do something because, otherwise, proportions would change. If this measure is passed—I have an amendment on this matter later so I will not develop it at great length—then 20% of the Conservative Benches, 16% of the Cross Benches, 4% of the Liberal Democrats and 2% of the Labour Party would be removed. So it has a profound effect over time.
Lord Hunt of Kings Heath (Lab)
My Lords, I can see where the noble Lord’s argument is going, but could he tell me at what point we would reach those figures? How many years will it take before those reductions took place?
Lord True
My Lords, I am not an actuary, but I know that at least 20 of the hereditary Peers on the Conservative Benches are already over 75 and a considerable number of them are over 80. I do not wish the Grim Reaper to visit any of my noble friends or indeed the noble Lords opposite, but the noble Lord knows very well that that is the position. It will happen. This would be statute, and over time that proportion will change. I have an amendment later that I hope will address that question; I hope we will get on and get to it, and I hope the noble Lord, Lord Grocott, will accept it.
I ask your Lordships not to accept strictures from the Opposition Benches but to guard the point of proportion. I agree that this should be a matter for the Government. I think we should also be looking at the issue of more comprehensive reform, as proposed by the noble Lord, Lord Adonis.
Viscount Trenchard (Con)
My Lords, if I may add to what my noble friend has just said on the issue of proportion, in a smaller House of, say, 600 Members, if Burns is implemented, the proportions of the hereditaries and of the Bishops would simply revert to what they were immediately after the passage of the House of Lords Act 1999. So in a sense one could argue that the proportion of hereditaries and of Bishops has declined gradually beyond what was agreed at the time of the reform in 1999.
I also support the Motion moved by my noble friend Lord Trefgarne. I believe it would be wrong of your Lordships’ House to agree to remove the hereditary by-elections, for the very simple reason that it was made very clear in 1999 that the hereditary element would remain until and unless the House was substantially reformed into some kind of more democratically elected Chamber. I have heard it said on many occasions that the retention of 92 hereditary Peers and the system of by-elections to replace them was only ever intended to be a temporary measure. That is not my recollection of what happened at the time. I remember my noble friend Lord Salisbury, as he now is, explaining to a meeting of Conservative Peers that it was quite likely that the by-elections would remain for a very long time because he thought it likely that the House would not agree to substantive reform. My noble friend’s characteristically astute judgment has proved correct. It was on this basis that a large majority of Peers decided to support the passage of the Act. It would be quite wrong to change the terms of the agreement then reached without once again seeking the opinion of all those who were disenfranchised by the House of Lords Act.
I also take issue with what the noble Lord, Lord Grocott, said in the debate on 11 July on the Procedure Committee report. I understand that the committee considered the proposal that Standing Orders should be amended to provide that the whole House should take part in hereditary by-elections. That is different from the change that I think the Procedure Committee should consider, which is that the three party blocs and the Cross-Bench bloc should be retained for all by-elections other than those in the list of 15 Peers who originally held office as Deputy Speakers, but that those four blocs should be opened up to life Peers of the same party. This would get rid of the charge that the Liberal Democrat and Labour Party by-elections, with as few as three electors, are absurd. I think the House should make this change.
It is also right that the Conservative and Cross-Bench life Peers should have a vote in the selection of a new hereditary colleague equivalent to what their hereditary colleagues have, even though the existing electorates of 30 or 40 are not so ridiculous and have provided for some quite competitive and interesting elections. Indeed, I do not think there is any logical reason for the difference in the Standing Orders adopted in 1999 between the ability of the life Peers to vote in the Deputy Speaker elections but not in the single-party bloc elections.
Lord Dubs (Lab)
My Lords, I am not an expert in procedure, and I have listened quite hard, but are we not in a Second Reading debate? I thought that was not acceptable.
Viscount Trenchard
I understand the noble Lord’s point of view, but I thought it was relevant to comment on the fact that the noble Lord, Lord Grocott, had spoken about the lack of interest in the hereditary by-elections. I wanted to speak in support of my noble friend Lord Trefgarne’s regret Motion because, for the reasons that I am trying to explain, I think the by-election system has more merit than many of your Lordships often seem to think when they express an opinion. It is also a benefit to—
Lord Elton
With the greatest of respect for my noble friend, and with great embarrassment, I have to say that, as I said before, I do not think the speeches of this sort are addressing the Motion before the House.
The Earl of Caithness (Con)
My Lords, I am grateful to the noble Lord, Lord Grocott. I would like to add a few words in support of my noble friend Lord Trefgarne’s amendment. I believe the Government should grasp this nettle. I disagree with the noble Baroness, Lady Hayter, on this; to many others, this is not a minor matter. There was a solemn and binding commitment in 1999 that we entered into. I agree with the noble Lord, Lord Desai, that you cannot bind the next Government, but this was a hugely important matter for this House. We were requested by the noble and learned Lord the Lord Chancellor, on honour, to vote in that election. When I have discussed this with people both within the House and outside it, I am quite surprised by the reactions. In this House I have been told, “It doesn’t really matter in politics; there is no such thing as binding honour”.
The Earl of Caithness
May I just finish what I am saying, please? It is a very House of Commons attitude to keep on interrupting when someone is developing a theme.
The Earl of Caithness
It is perfectly true. This never used to happen; I have been here for a day or two.
Outside the House, people who think I am wrong in the position that I take on this Bill agree with me that there is a huge point of principle and I am absolutely justified in the position that I am taking. The noble Lord, Lord Blunkett—
Lord Tyler
I just want to correct the history that is being advanced this morning. The author of this provision, Lord Weatherill, referred to it as temporary. On 11 May 1999, the Lord Chancellor himself said, using strong words, that this would last only through the transitional House and that the transitional House would be brought to an end in the next Parliament. How does the noble Earl therefore justify his comments?
The Earl of Caithness
Because the transitional House was not brought to an end—I am just coming to that point. The noble Lord, Lord Blunkett, said that phase 2 will be the proposals of the noble Lord, Lord Burns. That is quite an acceptable point of view, and I hope that the noble Lord will support my noble friend Lord Trefgarne and me in our amendments to relate the Bill to the Burns report: that is one of our constructive amendments. Let me make my position clear: if Burns is agreed and implemented, I have no objection to by-elections stopping, because that fulfils the commitment of 1992.
Lord Elton
Does my noble friend agree that it is important to grasp the point, which has not already been made, that there is a difference between the two Houses? The House of Commons is transitory between elections; this House continues. We may be in a different Parliament, but it is the same House of Lords and an undertaking given in this House presumably continues.
The Earl of Caithness
I am very grateful to my noble friend Lord Elton and totally agree with what he said.
Lord Grocott
My Lords, I do not think we have covered ourselves in glory over the past 45 minutes. The Commons is not sitting today, so if there is any parliamentary coverage, it will presumably focus on us and this debate. I hope that one or two contributions do not receive a wider audience, because essentially what is happening now is a filibuster on a Bill which had overwhelming support at Second Reading. It is an identical Bill to one that I introduced in the previous Parliament which, likewise, had overwhelming support on Second Reading and was filibustered out of existence in Committee. The principal supporters—organisers, indeed—of this filibuster know that there is a small minority of people opposed to the Bill in this House. That is what the world outside, if it is interested, needs to know. The Bill is simply ending by-elections. I make no apology for repeating that in one of the most recent ones, there was an electorate of three but seven candidates. There is no by-election in the world as absurd as that and yet, amazingly, a number of speakers today want us to continue that system in perpetuity. Let us make no bones about that whatsoever.
The Earl of Erroll
First, the Bill’s sole purpose is not to end by-elections. You will get an appointed House de facto through the back door, whether you like it or not. That is the net result, and we do not want by-elections to go on in perpetuity: I want a democratically elected House.
Lord Grocott
The noble Earl should simply read the title of the Bill: the clue is in the title. The Bill is the House of Lords (Hereditary Peers) (Abolition of By-Elections) Bill. That is what it does: nothing more, nothing less. If you oppose the Bill, you support the by-elections: there is no equivocation on that fact.
I must respond on two specific points made that are worthy of emphasis. The noble and learned Lord, Lord Brown, made a point about the assisted places scheme that the Bill addresses. It is worth putting it into figures. If you inherit a title from a hereditary Peer, you have something like a one in 211 chance—that is the number on the list of hereditary Peers able to stand in any by-election—of becoming a Member of Parliament, because this is a House of Parliament. If you are anyone else, like most of us here or the 60 million or however many people it is who are over the age of 18 in Britain, you have something like a one in 70,000 chance of becoming a Member of Parliament. That is the arithmetic, as I make it, so it is a ridiculous assisted places scheme, and all those who speak up to defend it who are hereditary Peers—I know that some are not—need to explain why they should have that massive advantage over all their fellow citizens.
Lord Adonis
Can my noble friend tell the House the size of the electorate that made him, and indeed me, a Member of this House?
Lord Grocott
I cannot speak for my noble friend, who has spent so much of his life with the Liberal Democrats. I am not sure whether he was a recommendation of the Liberal Democrats or of the Labour Party, but in my case it was on the basis of 60 years’ membership of the Labour Party, of which I am very proud and for which I will continue to do the job here.
I must deal briefly with the point made by the noble Lord, Lord Wakeham, because it needs addressing, which is that somehow we must wait until the Burns report is implemented before we act. I make the very obvious point that the cardinal argument within the Burns report is that we must reduce the size of the House, and the mechanism for doing it would be two out, one in. Since our first debate in Committee, there have been two further by-elections for hereditary Peers. Those two hereditary Peers should have been replaced by one, according to the Burns report, but no, lo and behold, there are two more here. It is essential for anyone who is sincere about wanting to implement the Burns report that we get on and pass my Bill, because it would enable us to reduce the number of hereditary Peers, not precisely arithmetically but in line with the recommendation of the Burns report.
The only consequence of the amendment moved by the noble Lord, Lord Trefgarne, is not to enlighten anyone; it is simply to delay further progress on the Bill. The two principal—I will not call them culprits, because I am sure they are proud of it—Peers who have relentlessly tried to filibuster the Bill are the noble Earl, Lord Caithness, and the noble Lord, Lord Trefgarne. This time, 55 of the amendments are in their names. We had a similar debate to this before our previous Committee sitting, when there was a long debate on whether to put the Bill into Committee. We are doing that again now, and presumably we will do it again whenever it is next considered in Committee. It is clearly their objective to talk the Bill out.
I simply say this to the two of them: I know that the overwhelming majority of people in this House want the Bill to pass. The exchange of views up to now does not at all proportionately reflect the view in the House because—I am grateful to them for this—the numerous colleagues on all sides of the House who I know support the Bill have not wanted to contribute to the filibuster. A tiny minority is thwarting the clearly expressed view of these Benches, the Liberal Democrat Benches, a large number on the Conservative Benches and the Cross Benches and, in my judgment, a majority of hereditary Peers, any number of whom have come up to me to say that they wish that the noble Lord, Lord Trefgarne, and the noble Earl, Lord Caithness, would desist from what they are doing.
They should know better. Between the two of them, they have had about 100 years’ membership of this House. I repeat that because I could barely believe it when I looked it up: 100 years between them. They ought to be getting the hang of the rules by now, one of which is surely that you know when it is time to call a halt. They should call a halt on this and allow the Bill to proceed, because the only effect of what they are doing at the moment is not to improve the Bill or to stop it—they know they cannot do that, they do not remotely have the numbers; every time we have had a vote on the Bill there has been a majority of about 100. They should desist. I fear we now have only two and a half hours, but we had three and a half hours when we began the discussion. I will gladly give way to the noble Earl, Lord Caithness, because every time he speaks he gives me greater confidence of my position.
The Earl of Caithness
My Lords, I resent the fact that I have been classed as a filibusterer whose sole intention is to stop this Bill. If your Lordships add up the amount of time I have spoken for, it is comparatively little. I have put forward amendments to improve the Bill and to link it to the Burns report. We put forward amendments to widen the franchise for the by-elections, which the noble Lord, Lord Grocott, has just said we did not want to do. We have tried to improve the Bill.
Lord Grocott
He has tried to improve the Bill, my Lords? All I can say is: it is the way he tells them. I hope the House will come to a conclusion on this now. If there is a Division I hope that all noble Lords who want progress will vote against it.
Lord Trefgarne
My Lords, I have had a certain amount of support for the amendment.
Lord Adonis
At end insert “but regrets that the bill does not provide for a democratic second chamber to replace the existing nominated and hereditary House of Lords; and that the bill does not provide for a democratic second chamber to meet in the north of England”.
Lord Adonis’s amendment not moved.
Motion agreed.
Clause 1: Abolition of the system of by-elections for hereditary peers
Amendment 11
Lord Trefgarne
“(2) In section 2, after subsection (4) insert—“(4A) Standing Orders must provide that vacancies amongst the 90 excepted hereditary peers are filled by a method which ensures that the excepted hereditary peer is younger than the average age of members of the House of Lords at the time the vacancy occurs.””
Lord Trefgarne
My Lords, I have already covered much of the substance of this amendment. I beg to move.
The Lord Speaker (Lord Fowler)
My Lords, I should inform the Committee that if Amendment 11 is agreed to, I am unable to call Amendments 17 to 33A by reason of pre-emption.
Lord Snape (Lab)
My Lords, I query the terms of the amendment. What is behind it? Every time we debate this piece of legislation, the noble Lord, Lord Trefgarne, and the noble Earl, Lord Caithness, appear, like woolly mammoths from the permafrost, with a series of amendments. As I understand this amendment, the noble Lord wants any excepted hereditary Peer to be younger than the average age of Members of the House of Lords. He will correct me if I have got that wrong.
The noble Lord set a fine example himself. As my noble friend Lord Grocott indicated, the noble Lord, Lord Trefgarne, has spent no fewer than 56 years as a Member in your Lordships’ House. As I understand it, he took his place in the House on his 21st birthday. I hope he does not think me rude if I say that, by the look of him, that was some time ago. It was, in fact, in June 1962 and he has been here ever since. In that year, as I am sure some of my noble friends well remember, the Beatles and the Rolling Stones cut their first records and Harold Macmillan was Prime Minister. In 1962, I was a humble lance-corporal in the Royal Engineers, yet at that time the noble Lord was studying the wine list in the Members’ Dining Room. He is thoroughly institutionalised.
Although the motives for the amendment are creditable, the Committee deserves a fuller explanation of the thinking behind it. After all, he set a fine example himself, being scarcely out of his teens. Indeed, following the untimely death of his father, had the rules of your Lordships’ House been different in 1962, he would have taken his seat even earlier; he had to wait until his 21st birthday to do so. We are due some clarification from him about the terms and the meaning of this amendment, otherwise—perish the thought—we might think that this is just yet another attempt to delay this piece of legislation.
The Earl of Caithness
I cannot speak for my noble friend Lord Trefgarne, but I say to the noble Lord, Lord Snape, that the reason for tabling this amendment is that we are concerned about the average age of the House, which has gone up. One great advantage of having hereditary Peers here is the youth that is involved. If the noble Lord looks at the average age of life Peer appointments, he will see that, of the last 15 appointed, one was in their 80s, two were in their 70s, with most in their 60s. This eventually will shove the average age of the House up. I see the purpose of the amendment as to try to keep a balance and to keep the average age of the House as low as practicably possible.
Lord Cormack
My Lords, I hope that my noble friend on the Front Bench is being provoked beyond endurance. We have just seen a most appalling waste of time. The noble Lord, Lord Trefgarne, moved his amendment, as he was entirely entitled to do, but he did not put in Tellers. There is no way of recording the enormous majority that displayed itself in the Not-Content Lobby. Had that vote come to a proper conclusion, I doubt whether he and his colleagues would have reached double figures. They certainly would not have got much beyond that. This is a disgraceful abuse of not just your Lordships’ House but the institution of Parliament. If my noble friend on the Front Bench is not provoked beyond endurance, I am.
Lord Grocott
I agree wholeheartedly with what has been said and I think that the noble Lord, Lord Trefgarne, should reflect on it as well. He knows perfectly well that the one thing he dare not do in the proceedings today is to put any of these in many cases ridiculous amendments to the vote, because he would be defeated overwhelmingly, as on previous occasions. Just for the record, in this group, Amendment 11 states that:
“Standing Orders must provide that vacancies amongst the 90 excepted hereditary peers are filled by a method which ensures that the excepted hereditary peer is younger than the average age of members of the House of Lords at the time the vacancy occurs”.
Quite simply, that means that we would continue to have by-elections. This is a proposal to defeat the Bill. The Bill is to end the by-elections; this amendment would ensure that they continued. I hope that the noble Lord, Lord Trefgarne, will beg leave to withdraw his amendment but, if he does not, I hope that he puts in tellers and votes this time and no longer abuses the procedures of the House.
Lord Berkeley of Knighton (CB)
My Lords, to my shame, I invited a young political student to observe this debate. I am embarrassed that I did so. This debate reflects appallingly on this House and I hope that the Government will seize the nettle. We need to get on with it; it is disgraceful that we are trying to advantage one small section of society over another, as my noble and learned friend Lord Brown has pointed out. I am deeply ashamed to have been a part of these proceedings.
Lord Northbrook
My Lords, I rise to speak to Amendment 15 in this group, which provides that future vacancies shall be filled,
“using a method which ensures that over time excepted hereditary peers are elected on a basis which provides for a fair representation of hereditary peers representing Northern Ireland and Scotland”.
Lord Grocott
To save a lot of words, can the noble Lord just confirm that his amendment, if carried, would mean the continuation of by-elections for hereditary Peers, the precise matter that this Bill tries to deals with?
Lord Northbrook
I agree that I support the continuation of the by-elections, but this amendment is looking at the House of Lords Act 1999 and amending it accordingly.
Lord True
My Lords, for the record, I am not a hereditary Peer, nor do I favour the outcome that would follow the passage of this legislation in time, of an all-appointed House. We have many Bills in this House that are opposed, and we have seen a number of them attract far more public attention in recent weeks, where Bills have gone on for day after day in Committee. I do not think it is appropriate or reasonable to call fellow Peers who have a point of principle to put forward a “disgrace” or to say that one is “ashamed”. I am ashamed when I see in the House other people stand up and say that Members of this House have no right to put forward a point in principle. I raised reasonable objections to this Bill at Second Reading. There are strong objections to the Bill—in my view, it should be a government Bill and in terms of the proportionality effect, which I have described, and of the binding commitment in honour. All those arguments are reasonable, and there are others. I will not be silenced by people saying that I am a disgrace or that I bring disrepute on the House. What is our Parliament for if not to allow those who have a minority view to put it before this House?
Lord Northbrook
My Lords, if I may continue speaking to Amendment 15 about Scottish and Northern Irish Peers, let us consider the position in 1999 when, according to Dod’s Parliamentary Companion, the House had 785 Members in total. Of these, Dod’s labelled 85 as Scottish and no fewer than 67 as Northern Irish. The regional numbers of the current House of Commons show that, at the last election, there were 59 Scottish MPs elected and 18 Northern Irish MPs. On the same basis, there should be nine elected Northern Irish hereditary Peers and 11 Scottish ones. Current figures for the composition of the 90 hereditary Peers in the House show Scotland adequately represented but that Northern Irish Peers, on the above alternative comparisons, should number between three and eight, rather than the one Peer at present. I will give a brief historical background to support my argument—
Lord Rennard
My Lords, to save the time of the House, and perhaps to protect its reputation, can the noble Lord confirm that, if his argument on this amendment has merit, he will seek to test the opinion of the House and put in Tellers so that we can show our opinion? If, on the other hand, he is not going to test of the opinion of the House, or not put in Tellers and waste our time, surely he is accepting that his argument does not have real merit and he is simply trying to filibuster and defeat the Bill.
Lord Northbrook
I confirm to the noble Lord, Lord Rennard, that I wish to test the opinion of the House on this amendment.
Lord Foulkes of Cumnock (Lab)
What is a Northern Irish Peer and what is a Scottish Peer? Can the noble Lord define them?
Lord Northbrook
I have relied on figures from Dod’s Parliamentary Companion. The noble Lord makes a good point. There is one hereditary Peer on the Cross Benches, as I understand it, who lives in Northern Ireland. The complication, I think, is that there are some old Irish titles and people are living in England. I am looking at people living in Northern Ireland.
Lord Foulkes of Cumnock
Just to take an example, if a Peer lived in London but owned a huge chunk of Scotland—and there are a few of those—would he be a Scottish Peer?
Lord Cormack
What about the redoubtable noble Countess, Lady Mar, who is loved in all parts of this House? Is she a Scottish Peer? She lives in Worcestershire.
Lord Northbrook
As I understand it, she has lived in Worcestershire for quite a long time—so I would have to check the figures from the House of Lords Library on that.
The Earl of Caithness
I think the answer to my noble friend Lord Cormack is that the noble Countess is a Peer of Scotland.
Lord Northbrook
I will give a brief historical background to support my argument. The Act of Union between the UK and Ireland in 1800 provided that the Peers of Ireland should elect 28 of their number, to be called Irish representative Peers, to sit for life on the part of Ireland in the House of Lords of the new United Kingdom. The fourth article of this Act of Union provides that,
“such act as shall be passed in the parliament of Ireland previous to the union, ‘to regulate the mode by which the’”,
representative Peers should be chosen,
“shall be incorporated in the acts of the respective parliaments”,
by which it was to be rectified.
The Irish Parliament passed such an Act, laying down in great detail how the original representative Peers and their successors were to be chosen. It laid down that the Irish temporal Peers were to meet at a stated time and place to elect 28 of their number, and each of the temporal Lords so chosen,
“shall be entitled to sit in the House of Lords during his life”.
Clearly a similar role is set out for a Peer chosen to fill a vacancy. This procedure continued unchanged until almost 100 years ago, when the Irish Free State was established. Crucially, the legislation that created this abolished the offices of the Lord Chancellor of Ireland and the Clerk of the Crown in Ireland, who was responsible under the Act of Union for carrying out important duties in connection with the election of Irish representative Peers.
In 1925, the UK Government were advised by their Attorney-General that this abolition demonstrated an intention to terminate the rights of Irish Peers to elect Irish representative Peers to fill vacancies as they arose. Expert legal opinion was obtained from two leading members of the UK Bar—namely, the future Lord Chancellor and the future Master of the Rolls—that the right of Irish Peers to elect representative Peers had survived and was unassailable. But the matter was not insisted on or carried through by the Irish Peers. Those already elected carried on serving for life, but no effort was made to replace those who died. While in 1925 the Attorney-General’s opinion could be justified for the south, it left Northern Ireland out in the cold.
Lord Adonis
I am trying to understand the significance of the point the noble Lord is making, because the figures that have been provided to me by the Library suggest that among the hereditary Peers—leaving aside the big problem we have about the lack of adequate representation of large parts of the United Kingdom among the life Peers—Scotland is overrepresented and Northern Ireland is appropriately represented. The figures that I have show that 10% of hereditary Peers are Scots, against 8% of the population at large. So I am not sure what the particular evil is against which he is seeking to protect the House.
Lord Northbrook
The noble Lord is correct on Scottish representation—I said earlier in my speech that the Scots were adequately represented. As I understood it, only one of the 92 was a Northern Irish Peer, and I wanted to see that process continued among both nationalities.
Lord Thomas of Gresford (LD)
Does the noble Lord agree that there is therefore a lacuna in the Act of Union of 1542 which incorporated Wales into the United Kingdom? Would he accept that Henry VIII powers should be put into this Act to amend that particular lacuna?
Lord Northbrook
Far be it from me to debate with the noble Lord, but as I understand it, the concept of representative Peers did not apply to Wales, while it did to Northern Ireland and Scotland.
Lord Northbrook
That is beyond the terms of my amendment.
The Peerage Act 1963 gave all hereditary Peers of Scotland the right to sit in the House of Lords, instead of requiring them to elect 16 of their number, as had been the case since the union with Scotland in 1707. But no similar measure was introduced for the Peers of Ireland.
We move on to 1965. A number of Irish Peers, led by the Earl of Antrim, petitioned the House of Lords for recognition of their rights to elect 28 representative Peers to sit in the House of Lords. This was referred to our Committee for Privileges. The committee concluded that as there was no longer one Ireland, the Act of Union 1800 provision for 28 representative Peers no longer applied. However, Lord Wilberforce, dissenting in part, made a crucial point. He said as follows: because the office of Lord Chancellor of Ireland, as well as other offices such as the Clerk of the Crown in Parliament, which enabled the election of Irish representative Peers, had been abolished in 1922, it made it impossible to follow the procedures laid down in the Act of Union 1800 for a replacement when one of them died.
The Committee for Privileges’ verdict, in my layman’s view, is unsatisfactory because it failed to recognise, first, that the Irish representative Peers represented the Peers of Ireland and not Ireland as a whole. As a result, any change in Ireland was irrelevant. It also ignored the continued existence of part of Ireland—Northern Ireland—in the United Kingdom. Lord Wilberforce also expressed doubts that an Act of such constitutional importance as the Act of Union with Ireland could be repealed by implication or obsolescence.
Returning to the Scottish peerage, I cannot fail to mention the challenge of the House of Lords Act 1999, which stated that there should be 16 Scottish hereditary Peers in perpetuity in the House of Lords and that their abolition was contrary to Article 22 of the Treaty of Union between England and Scotland.
This is therefore an excellent opportunity to redress the scarcity of elected hereditary Northern Ireland Peers and maintain the number of elected Scottish hereditary Peers.
The Earl of Erroll
I wish to say—very quickly, because we have just had a history lecture—that, under the Peerage Act 1963, hereditary Peeresses, Peers in their own right, could sit for the first time in the House of Lords. My mother was one of the 16 elected Scottish representative Peers to sit, and one of the first five hereditary Peeresses to sit in the House of Lords—so we did get a bit of female representation. The answer to the Wales question is that of course it was not a kingdom. The issue of the Scots Peers was around the merging of two kingdoms under a Scottish king.
Lord Trefgarne
My Lords, to refer to the point made in my noble friend Lord Northbrook’s amendment, the question of the Scottish Peers was of course addressed when what became the 1999 Act went through your Lordships’ House. As I recall, although it is now a long time ago, the Scottish Peers petitioned the House for exclusion from the provisions of the 1999 Act. They were represented by none other than the then Mr Richard Keen—now none other than my noble and learned friend Lord Keen of Elie himself. His petition did not succeed.
Lord Snape
Will the noble Lord answer the point I put to him and tell us the thinking behind his own amendment—otherwise we might think that he has tabled it somewhat mischievously?
Lord Trefgarne
My Lords, I have nothing to add to the remarks I made earlier.
The Deputy Chairman of Committees (Baroness McIntosh of Hudnall) (Lab)
What does the noble Lord wish to do with his amendment?
Lord Trefgarne
“(2) In section 2, after subsection (4) insert—“(4A) Standing Orders must provide that future vacancies must be filled using a method which ensures that over time excepted hereditary peers are elected on a basis which provides for the equitable representation of each country and region of the United Kingdom.””
Lord Trefgarne
My Lords, my noble friend Lord Caithness has spoken at some length to this matter. I beg to move.
Lord Trefgarne
“(2) For section 2(4) substitute—“(4) Standing Orders must make provision for filling vacancies among the people excepted from section 1 through a nomination and selection process run by the House of Lords Appointments Commission.””
Lord Grocott
Perhaps I may help the noble Lord, Lord Trefgarne, with the procedure, as he is fairly new to this place. This amendment was in a group that we discussed in March, when we dealt, I think, with 10 amendments in two hours. So far today, we have dealt with two amendments in one hour 40 minutes. At this rate, we will need about 10 more Fridays to complete this stage. I hope that the noble Lord acknowledges the appalling waste of precious time that is resulting from what he is doing. To now start moving an amendment that has already been part of a debated group is something that he should refrain from doing.
Lord Trefgarne
My Lords, I do not wish to offend the noble Lord, Lord Grocott, or anyone else for that matter, so I shall not move the amendment.
Lord Northbrook
“(2) In section 2, after subsection (4) insert—“(4A) Standing Orders must provide for future vacancies to be filled using a method which ensures that over time excepted hereditary peers are elected on a basis which provides for a fair representation of hereditary peers representing Northern Ireland and Scotland, over time reaching the same proportion in relation to the total number of excepted hereditary peers as the proportion of MPs for Northern Ireland, or Scotland, in relation to the total number of MPs in the House of Commons.””
Lord Northbrook
“(2) For section 2(3) to (5) substitute—“( ) Standing Orders must provide for—(a) the 90 people to be excepted for the duration of a Parliament; and(b) the Hereditary Peers Commission, at the beginning of each Parliament, to determine which holders of hereditary peerages should fill the 90 places provided for in subsection (2).(3) Schedule (Hereditary Peers Commission) makes provision about the Hereditary Peers Commission.””
Lord Northbrook
This amendment has already been debated but, with the leave of the Committee, I wish to speak to it because I was not here at that time.
Lord Grocott
My Lords, perhaps I may offer a gentle suggestion to the noble Lord. I do not think that he is carrying the mood of the Committee in wishing to speak to Amendment 16, which was spoken to three months ago. The previous vote rather indicates that, whatever eloquent tactics he deploys, he is most unlikely to carry the Committee, and I suggest that we move on.
Lord Northbrook
I note what the noble Lord says. Actually, it was not covered on day one, but I take the mood of the Committee and shall not move the amendment.
Lord Northbrook
“(2) Section 2 is amended as follows.(3) At the beginning of subsection (3) insert “Subject to subsection (3A),”(4) After subsection (3) insert—“(3A) An excepted person elected to the House of Lords under subsection (4) after the House of Lords has passed a resolution that steps have been taken to implement paragraphs 29, 35, 39 and 48 to 51 of the Burns Report (fixed-term appointments) remains a member of the House of Lords for a period of 15 years beginning with the day on which they receive a Writ of Summons.(3B) In this section “Burns Report” means the report of the Lords Speaker's committee on the size of the House of Lords, published on 31 October 2017.”(5) At the end of subsection (4)(b) insert “, or(c) a vacancy arises on the end of the 15 year period of an excepted person under subsection (3A),””
Lord Northbrook
My Lords, as far as I am aware, this is a new amendment which has not been moved before. It suggests that any excepted person under the House of Lords Act would, once the Burns commission report has been adopted, remain a Member of the House for a fixed term of 15 years, as other Members will be after the Burns report is implemented. However, until the legislation changes, a by-election could still be held at the end of 15 years after the first hereditary Peer had been elected. I beg to move.
The Earl of Erroll
This amendment sounds quite sensible as it brings us into line with the spirit of the Burns report.
Lord Grocott
My Lords, the best way to respond to the spirit of the Burns report would be to pass this Bill and turn it into an Act, because, for as long as it remains on the statute book, for every one hereditary Peer who leaves for whatever reason, he or she—well, it is “he”, actually—will always be replaced by another hereditary Peer. Everyone else would be under a system whereby it is two out and one in, with the exception of the hereditary Peers. I suggest that if the noble Lord is concerned about the Burns report, he should withdraw his amendment.
Lord True
My Lords, surely this is a matter than can be addressed when we reach the Burns report. I understand the fervour of the noble Lord, Lord Grocott, who is a good old Labour man, to end the procedure that his party agreed on. However, every time he puts his point before the House, I feel that I must repeatedly say, so that the public realise, that the result of this legislation would be the creation in time of an all-appointed House of Lords. That is the effect of this legislation, but the noble Lord never refers to the effect. One of my fundamental objections is that we would, through passing this legislation, create over time an all-appointed House of Lords without the consent of the British people to a manifesto commitment or a Bill brought before Parliament by a Government. That is the proper way to proceed. This House should not, by a hole-in-the-wall procedure masquerading as modernisation, pass legislation that will have the effect in time of creating an all-appointed House for which there is no current democratic consent. Every time the noble Lord, Lord Grocott, makes his point, I will put that point before the public.
Baroness Hayter of Kentish Town
My Lords, this is an all-appointed House; it is just that some people are here because their fathers, grandfathers or great-grandfathers were appointed by the King or the Queen at the time. It is an all-appointed House.
The Earl of Erroll
The difference is that because we are here and that is found objectionable by some people, we might get a democratic House. If we go, we will not. Those of us who are democrats think that there should be democratic authority and legitimacy in the House of Lords for it to survive long term.
Lord Snape
Can the noble Earl tell us how many of his ancestors fought for democracy and where?
Lord Trefgarne
I can help the noble Lord by telling the House about my ancestor. I am the second Lord Trefgarne and my father was the first. He was a Liberal and then later a Labour MP.
Lord Colgrain (Con)
My Lords, I would point out that I am the fourth who has been fortunate enough to be a representative in your Lordships’ House. I am also the most recent hereditary Peer to have been elected by the whole House: 803 of your Lordships were in a position to elect me, which makes me feel that my position is slightly more democratically representative than that of a large number of others.
I was hoping to say quite a lot of things today but I do not want to be accused of filibustering. Therefore, I will foreshorten my speech and just say three things that people have referred to me when it comes to what they find attractive about hereditaries.
The first is that we do not come from the other place with trappings of party tribalism and a sense of our own personal political importance. Secondly, in the main, we do not have experience of working for the public sector, so we have a more finely tuned sense of the anxieties and insecurities of the private sector and the self-employed. Lastly, we are not beneficiaries of political patronage, which has resulted in over 300 of your Lordships being ex-MPs, MEPs or representatives of regional Assemblies and county councils. That counts for a great deal in the eyes of the public and is not something that should be discounted.
If the hereditary principle is seen as anomalous in a present-day democracy, it is probably no more so in the eyes of many, and no more idiosyncratic, than the fact that this country has been ruled for centuries without a written constitution, and for many, tradition begets legitimacy. The time for any review of the election of hereditary Peers should therefore not be piecemeal, as the noble Lord, Lord Grocott, proposes, but should be an integral part of the review by the noble Lord, Lord Burns. We should await the finalising of his report. If in the meanwhile there was a desire to change the current voting powers so that rather than being party specific, any hereditary should be elected by the whole House, that recommendation would have my unqualified support.
Lord Adonis
I am having some difficulty in understanding what the noble Lord’s amendment actually does. Can he explain to us in plain English what subsection (4) his amendment would do?
Lord Northbrook
Let us say that hereditary Peers operate after Burns in line with the 15-year term for life Peers, new hereditary Peers would be appointed for 15 years, and there would be a by-election at the end of that period of 15 years to replace them.
Lord Adonis
Can the noble Lord explain how that relates to Burns? My understanding is that the Burns report would reduce the size of the House. His amendment would not reduce the size of the House at all, would it? We would simply have an arbitrary 15-year re-election requirement for hereditary Peers. Or have I misunderstood him?
Lord Northbrook
The point is made. Maybe the amendment should be refined to say that once the Burns report has passed, the by-election procedure part of that falls.
Lord Adonis
So it is entirely in respect of those who come up for re-election at the end of the 15 years?
Lord Northbrook
Lord Northbrook
I am sorry to burden the House with my third amendment, but this is quite a serious point. I am quite surprised that the noble Lord, Lord Grocott, has eliminated the Lord Great Chamberlain and the Earl Marshal because these are royal officials. Contrary to what my noble friend Lord Cormack said, actually, when Her Majesty’s reign comes to an end, the role of the current Lord Great Chamberlain will go to a separate family altogether.
Lord Cormack
Yes, but the point is that neither the Earl Marshal nor the Lord Great Chamberlain are subject to by-election. That is the important point. The noble Lord, Lord Grocott, and I have discussed this, and he accepts that. There are 90 who are subject to by-elections but neither of these two great offices of state are. They will continue to pass, as they do, within the one family in respect of the Earl Marshal and two families in respect of the Lord Great Chamberlain until the end of time unless this House and Parliament should decree otherwise. They cannot fall victim to this particular Bill because they are not subject to by-election, so the amendment that my noble friend is about to move is redundant.
Lord Northbrook
Can the noble Lord explain to me why he put 92 in this Bill but 90 in the previous Bill? I do not understand that point.
Lord Grocott
I have no problem whatever with someone being called the Lord Great Chamberlain or anything else. I was intrigued to know that apparently the office would not go to the same family as currently occupies that role. I do not know whether any of our families might qualify, but so far I have heard nothing. The point is that I can see no reason whatever why these two offices of state, which perform ceremonial functions, need to be in the House of Lords in order to perform that function. At least one of them—two of them for most of the time—has been on permanent leave of absence, so their functions can clearly be carried out perfectly effectively whether or not they are Members of the House of Lords. Whether people can become Members of the House of Lords via heredity is the issue that we are considering.
Lord Cormack
The noble Lord will acknowledge that his Bill is designed—and this is why I support it—to end by-elections. His Bill does not end the Lord Great Chamberlain or the Earl Marshal. That is a simple statement of fact.
The Deputy Chairman of Committees (Baroness Henig) (Lab)
Does the noble Lord wish to move his amendment?
Lord Adonis
I have learned more about the British constitution in the last five minutes than in many years. I had no idea about the arrangements for the rotation of the office of the Lord Great Chamberlain. I hope that whoever succeeds the present one has a more pronounceable name than the Marquess of Cholmondeley because the problem with holding receptions in the Cholmondeley Room is that nobody knows how to pronounce the name of the person after whom the room is named.
This is an issue with my noble friend’s Bill. I strongly object to my noble friend’s Bill because it entrenches a nominated House, which is his purpose—my noble friend wants to entrench a nominated House. He is not interested in a democratic House and he is not even interested in what the noble Lord, Lord Cormack, wants, which is incremental reform, although I notice that the noble Lord did not say what his next incremental reform would be. Maybe he might tell us in due course. Perhaps he does not want any further incremental reform.
Lord Adonis
Just this reform and no further. We need to be clear about this. This will entrench a nominated House in perpetuity.
Lord Cormack
My Lords,
“Up with your damned nonsense will I put twice, or perhaps once, but sometimes always, by God, never”,
as Richter said to the first flute in the orchestra. The noble Lord ought to know that we have in this House a Campaign for an Effective Second Chamber, which I have the honour to chair and which my noble friend Lord Norton convenes; it has many Members of his side—enthusiastic Members, who are nodding as I am speaking. We believe in incremental reform. This is one more incremental reform following Steel, which dealt with retirement, following the Hayman Bill, which dealt with expulsion and there will be others. I hope that the big instalment later this year will be Burns. I would love to see that. It does not need legislation. That was why Burns was so skilful. I hope that we will have that, and it will be a further stage of incremental reform. It is not all legislative.
Lord Adonis
But these incremental reforms are so minute that no member of the public outside will have the faintest idea that any of this is happening. The reform that they will notice is whether we fundamentally change this House to turn it from being a nominated House that has no democratic legitimacy into an elected House which has legitimacy. That is the reform that will make a difference that people will notice. All this other incremental reform that the noble Lord is talking about is so much stuff and nonsense. It will have zero impact in the way that the House is perceived externally, and nothing other than a tiny, marginal impact on the actual operation of the House internally.
However, in terms of the integrity of the Bill, because I know that my noble friend is keen for us to stay on message, in so far as there is any principle at stake in the Bill at all, I do not accept it because I do not think that it makes the House any more legitimate than it is at the moment. To have hereditary Peers is fundamentally illegitimate. As a nominated House, as it would become after the passage of my noble friend’s Bill, it does not even achieve my noble friend’s objective. I understood that his objective was, over time, to eliminate the hereditary Peers. Now we discover from the noble Lord’s amendment that two hereditary Peers will remain, so there will still be an hereditary component in this House, even after the labours of Hercules that my noble friend has engaged in over many recent months.
The nonsensical nature of this Bill—nonsensical if one believes in wider reform, which some of us do—is made even greater when one looks at the actual detailed provisions. It does not even achieve my noble friend’s objective of seeking to entrench in perpetuity a nominated House.
Lord Foulkes of Cumnock
My noble friend Lord Adonis has this completely wrong. I normally agree with him, fully. There is no contradiction between having incremental reform now, while there is a Conservative Government and working towards major reform. I support major reform by the Labour Party, which Labour’s candidates stood on at the last general—that is, a senate of the nations and regions and not a directly elected legislature, which would challenge the primacy of the House of Commons. There is no contradiction between incremental reform now, and then, when we eventually attain a Labour Government, making some major reforms.
Lord Adonis
My Lords, it is very important that we do not dissemble. I agree entirely with my noble friend, and actually I think that he and I would probably agree on the nature of a reformed second Chamber. However, it is important to understand that that is not the position of my noble friend Lord Grocott. He wants a nominated House in perpetuity and he will frankly accept that. He does not want this to be the first stage towards wider reforms; he wants to entrench a nominated House which has, in my judgment, no legitimacy whatever within a democratic constitution. He should be, and indeed he is, open about that.
I do not understand why it is, if that is what he is setting about, that those people who claim to be in favour of democratic reform—there are some in this House—are playing his game. His game is not to take a first step on the road to wider reform—rather, it is to stop any wider reform at all from taking place. We need to understand what my noble friend is up to. He is a very serious politician; he knows absolutely what his own game is, and we should not be playing that game.
Lord Cormack
Before the noble Lord, Lord Grocott, rises to speak, perhaps I may say this to the noble Lord, Lord Adonis. He has every right to suggest that this place should be swept away and replaced by a directly elected second Chamber. That is a perfectly valid constitutional point of view. But for reasons that have been advanced time and time again, many of us in this House do not believe that and we refute it. We believe that this House is complementary to another place and that it adds value to the constitutional system. We believe that the unambiguous democratic mandate lies at the other end of the corridor but that we have something, both individually and collectively, free from many of the shackles of party and buttressed by a large Cross-Bench element, that we can contribute. That is an equally valid point of view to that of the noble Lord, Lord Adonis. While I respect his view as valid, I would ask him to reciprocate that feeling.
Lord Grocott
Perhaps I may have a word with my noble friend, who I always admire for his psychic powers, which I do not possess. He knows exactly why I do what I am doing at all stages. My noble friend is totally opposed to this Bill. I think he is the only person on these Benches—someone will stop me if I am wrong—or even on the Liberal Democrat Benches who is. I am grateful to him for clarifying his position. Whether he is sitting in the right place or not is only for him to judge.
I say this to my noble friend: I wish that he had made this statement a bit earlier. I had an identical Bill in the previous Parliament which received a Second Reading and a Committee stage. I do not recall seeing him in his place to express his view. He certainly did not take part in the Committee stage of this Bill on 23 March this year. I looked for him in the Division Lobby.
Lord Adonis
I was too concerned about filibustering my noble friend’s Bill.
Lord Young of Cookham
Perhaps I may gently remind your Lordships that we are debating Amendment 17 onwards, which relate to the Earl Marshal and the Lord Great Chamberlain.
The Duke of Montrose (Con)
My Lord, perhaps I may have a little clarification on what I understood the noble Lord, Lord Grocott, to say. We are looking at the point that this Bill would not affect the Earl Marshal and the Lord Great Chamberlain, but in discussing that element, I thought that the noble Lord said that these two gentlemen are not required to be Members of this House. When they come to perform their ceremonial duties, I wonder whether they do not have to be Members of the House in order to stand in the areas where they are required.
Lord Grocott
What is interesting to note, my Lords, is that both of them have been on leave of absence. One is no longer on that leave, but for at least the last several years that I have been looking at it, they have been on permanent leave of absence. That includes general election periods and the State Opening of Parliament. While I cannot pretend to know the constitution in enough depth to know whether they are allowed to stand in a certain place at a certain time, I can assure the noble Duke that the machinery of the State Opening has functioned perfectly well when these two people have been on leave of absence from the House of Lords.
Lord Jones of Birmingham (CB)
My Lords, far be it from me to intrude on the private grief of the Benches opposite, but I would ask noble Lords to think about this. At the moment, we are watching a constitutional polemicism of British life. The division and nastiness of that shows in so many ways. If I was a voter of any party at any time from Birmingham to Manchester and back again and I saw what was going on in this House today, frankly, I would vote to abolish the lot. That would be a crying shame because one thing that I have valued during my 11 years here is that we definitely stand apart from the tribalism and the nastiness that arises both down the Corridor and in the deselections that go on in constituencies. We are better than that, but at this moment, I am not seeing it and that upsets me.
Lord True
My Lords, I agree very much with the sentiments of the noble Lord who has just spoken. The trouble is that some of us see this as a party political strike against the Conservative Party, given the disproportionate number of Conservative Peers who would be removed. This was not a move that has been made by the Conservative Party—rather, it has been made by the Labour Benches. Earlier, the noble Lord, Lord Grocott, with support from his Front Bench, was rejoicing in the fact that he had universal approbation. Underneath this Bill is a political strike and a poison. It upsets many people who have given long service to this House. It upsets the traditional balance of the House without, as I have said before, broader democratic consent.
Lord True
No, at this stage I will not give way to my noble friend. He has had plenty to say, so I will give way to him later.
It is very unfortunate that the Bill is being pressed in this way and at this time which, notwithstanding my noble friend’s agreement with it, is in my judgment party political. Of course I agree with everything said by the noble Lord, Lord Adonis, and I was grateful to have the fifth cavalry arrive to give support to the point I have been trying to make; namely, that the effect of this Bill is to create what the majority of people here want but do not proclaim, which is a permanent nominated House. That is what they want and that is why they support this allegedly incremental step.
Perhaps, as my noble friend on the Front Bench has just said, we could come back to the amendment. While I cannot speak for my noble friend Lord Northbrook, the Bill as I read it excludes all 92 peerages in the sense that there will be no succession. It therefore would do what my noble friend Lord Cormack has said he does not want to see happen: it would exclude the Lord Great Chamberlain and the Earl Marshal.
I will give way to my noble friend.
Lord Cormack
I am most grateful. I will make one brief point. If my noble friend had been in the Lobby, he would have seen plenty of Conservative colleagues, including some very prominent ones, in it. The point is this: the Bill, as the noble Lord, Lord Grocott, has said repeatedly, is to abolish by-elections. It does not touch on the Lord Great Chamberlain or the Earl Marshal because they are not subject to by-elections. The noble Lord, Lord Grocott, has got this wrong and he has acknowledged that he has done so. He has made his personal observation that he does not see why these two people need to be Members of the House of Lords. That is his point of view—it is not mine—but it is not affected by his Bill because it deals with by-elections, and only with by-elections.
Lord True
As always I thank my noble friend for his agile clarification for the House. I agree that I would not want to see him upset by the removal of the Lord Great Chamberlain and the Earl Marshal. By the way, the previous Earl Marshal was a very assiduous attender of this place.
If the House is going to be asked to vote, we need to know what we are voting on. The noble Lord, Lord Grocott, has put this Bill before the House. My noble friend Lord Northbrook has tried to clarify the point which my noble friend Lord Cormack supports, which is that the Lord Great Chamberlain and the Earl Marshal should stay. The noble Lord, Lord Grocott, thinks that they should go. It is a rather minor point, but actually this is a legislative House. Given that, before we vote, can we be told by the mover of the Bill what he is proposing? He wishes to remove all 92; that is the effect of his Bill and that is his intent. We have heard what my noble friend Lord Cormack says, but what is the mover of the Bill telling the House?
Lord Grocott
My Lords, the Bill is quite clear. It says:
“No more than 92 people at any one time shall be excepted from section 1”.
That means that the 92, including the two referred to by the noble Lord, would no longer be Members of the House of Lords—or rather that their membership would not pass to their successors. It does not affect in the slightest their capacity to perform ceremonial duties. I have tried to follow this but I simply do not understand the method of succession for the Lord Great Chamberlain; it is beyond me. Do not try to explain it. I want to protect the Bill in its present form and I hope that the noble Lord, Lord Northbrook, will withdraw his amendment.
Lord True
The effect of the Bill is not as the noble Lord, Lord Cormack, said—that the two Peers or their successors would remain. They would all go. That is a perfectly clear position and I am grateful to the noble Lord, Lord Grocott, for clarifying it. It is not what the noble Lord, Lord Cormack, wished for but I am thankful for the clarification.
Lord Northbrook
My Lords, we have had an interesting debate. It was not entirely connected to the amendment but that was not my doing. Having increased the number from 90 to 92, I wonder whether there is any implication for the Royal Family.
Lord Mancroft (Con)
I have listened to this exchange. I do not know about other noble Lords, but I am not clear on where exactly we have got to on this. My noble friend might well take the advice of the Benches opposite. I do not think that any of your Lordships is clear what the amendment or the Bill achieves and whether they cut across each other. If my noble friend will forgive me, the obvious solution is for him to withdraw his amendment at this stage but bring it back on Report, by which time the noble Lord, Lord Grocott, could have clarified the position. I hope that helps your Lordships.
Lord Jones of Birmingham
May I add to that? When you are in a hole, stop digging.
Lord Northbrook
I want to clarify the point about the Lord Great Chamberlain for the House. Historically, the position has been split between two or three families and changes on the death of the sovereign. I do not know how that works in connection with the amendment; I want to revisit that. At the moment, I beg leave to withdraw the amendment.
The Earl of Caithness
The Earl of Caithness
My Lords, I was not going to move the amendment but I was provoked to do so by what the noble Lord, Lord Grocott, said earlier. I want to make the point that the noble Lord has spoken at length about the iniquities of the current by-election voting system. He said that we want to preserve it in perpetuity; in an earlier debate, I said that I do not want that. This is one example of our wanting to improve the by-election system by asking all Members of the House to vote when there is a by-election. In that way, I believe that the House will be more fully involved in by-elections.
It is worth noting that the noble Lord, Lord Grocott, talked about the proportion of people voting in by-elections. In the last Conservative by-election, 91.5% of those eligible to vote, voted. Clearly, there is a lot of interest as to who should be a successor.
Lord Trefgarne
A few weeks ago, I asked the Procedure Committee to consider changing the arrangements for by-elections so that in future they would be on an all-House basis and perhaps conducted in accordance with the so-called Carter convention. I have not yet heard the result of the committee’s consideration. I have heard it informally, at least, and I wonder whether I will hear it formally.
Lord Grocott
My Lords, one or two people in the House for whom I have great respect have suggested that we could solve the issue of absurd by-elections on a party basis—because in the case of Labour and the Lib Dems, we have only four hereditary Peers, so we get these idiotic procedures—where the whole House votes. I have two problems with that, one of which is insurmountable. The first is the turnout, as referred to by the noble Earl, Lord Caithness. He rightly said that turnout figures can be very high in party by-elections: in the Lib Dem by-election, I think that the turnout was 100%. There were three electors, all of whom voted, so that is a high percentage.
However, turnout figures are consistently very low—often less than 50%—when a turnout of the whole House is required. That is lower than the lowest turnout in any constituency in the country at the last general election, by way of a useless fact, mainly because I am sure that people like me think that the system is idiotic so do not bother. Certainly, the whole-House elections have a low turnout so the noble Earl, Lord Caithness, would be proposing a system with a low turnout.
The far more fundamental issue, which is why I hope that the House will reject this proposal, is that this does not nothing whatsoever about the spectacularly unrepresentative nature of the register of hereditary Peers. The question of who can vote is one thing—by all means, you can put forward a proposal for the whole House if you want to—but we would still face a choice restricted to the 211 people on the register, 210 of whom are men and among whom there are no members of ethnic minorities, for example. It is utterly absurd to proceed with by-elections, whatever the mechanism of election or the electorate, if the eligibility of the people to stand is so totally unrepresentative. I hope that the noble Earl, Lord Caithness, will withdraw his amendment.
Lord True
I can see entirely the logic of the position of the noble Lord, Lord Grocott. Obviously, it is an argument more broadly for reform of peerage law, not just through the Bill.
It is not for me to speak on behalf of the Procedure Committee, although I am a member of it. The noble Lord, Lord Trefgarne, said that this matter was put to the committee on his request, as well as that of the noble Duke, the Duke of Wellington, I believe, speaking from memory. That is true. The Procedure Committee considered it but felt—as I believe is the mood of the House generally, beyond your Lordships’ committee—that with the Burns report’s proposals before the House and a stage of incremental change approaching, this was perhaps not the moment to address the perfectly understandable and reasonable point put forward by the noble Lord. That is my personal position; I do not speak on behalf of committee members. I understand that the House can take a different view from the committee. My noble friend Lord Caithness sees his proposal as an improvement to our system. It is a genuine attempt to improve the Bill and the noble Lord, Lord Grocott, has given the reasons why he opposes it. As far as the Procedure Committee is concerned, with this Bill and the Burns Committee before the House, this might be best addressed at a later stage.
Lord Trefgarne
The noble Lord, Lord Grocott, referred to the list of hereditary Peers who are qualified to stand in by-elections. That list has I think only one female. I hope that the noble Lord will therefore support my Private Member’s Bill to change the law of succession for peerages so that noble Baronesses can succeed in the normal way.
Lord Grocott
How long does the noble Lord estimate it will be before the effect of his Bill will be parity between the sexes?
The Earl of Caithness
My Lords, the point has been made about daughters inheriting titles. I would be in total support of my noble friend Lord Trefgarne’s Bill. I would be very happy if eldest daughters were entitled to inherit. In fact, I supported the Bill at an earlier stage. It is that mischief that needs to be corrected, not the mischief that there are only males, except for one, on the waiting list to stand for a by-election.
The noble Lord, Lord Grocott, said that if there were elections of the whole House only a small percentage of Peers would vote. If I remember rightly the figures that my noble friend Lord Trenchard gave earlier, I did a quick bit of maths and 50% of the House voted on the whole-House election. If that is considered to be a total waste of time because it is a small percentage, it is worth bearing in mind that the highest percentage of people who voted in the UK at a European parliamentary election is only 38%. Perhaps that is a very good reason why elections to that Parliament should be stopped. I beg leave to withdraw the amendment, but I will bring it back at a later stage.
Lord True
My Lords, I must tell the House that I do not recall having put the case for Amendment 33. I will not detain the House with it at this time. I believe that it is a profoundly important question. It relates to the fact that there is a grotesque overrepresentation of Liberal Democrats in this Chamber—a far more glaring problem in terms of the management of democracy than the presence of the by-elections for hereditary Peers. Since I discovered this morning that it had been listed as “already debated”, although I remember degrouping the matter, I will not detain the House because it would be discourteous, given that it affects the Liberal Democrats’ interests for me to pursue it. I accept that I will not move it, but I give notice to the House that if we reach Report on this Bill I will take that opportunity to raise the question of Liberal Democrat overrepresentation, because I do not think that this minor matter in the Bill should go forward before that glaring democratic anomaly has been addressed. I am afraid that it is a matter we will have to return to.
Baroness Hussein-Ece (LD)
I apologise that the great reaper has not taken me away yet, but does the noble Lord not think that there is an overrepresentation of white, privileged, well-off, middle-class men—or even more privileged men—in this House compared with the population as a whole? Does he not think that there is an imbalance in this House in people who represent ordinary people in this country?
Lord True
My Lords, that would be an argument for reform and change of the House. I do not do identity politics, I am afraid. I regard every member of our society, whatever race or gender, as equal and deserving equal respect. This House is a deposit of historical tradition. It is as it is. The composition of this House—it has become largely a nominated House—is the result of the choice of party-political leaders in this country. Let us not have all this flim-flam about representation. If we want representation, let us have election. So far as the composition of this House is concerned, with primary life Peers, nominated people who get attention, lucky folk who get a selector of one—the Prime Minister or the party leader of the day—who says, “Go there”, the noble Baroness’s strictures should be addressed not to this House, but to the leaders of the political parties, including the Liberal Democrats, who have sent here the people who are here. That is a matter we can debate further when we come back to it, but it is entirely irrelevant to this Bill, which will do nothing—
Lord Tyler
It is also totally irrelevant to the amendment to which the noble Lord is supposed to be speaking.
Lord True
I gave notice out of courtesy. I came here to speak to this amendment; out of courtesy to the Liberal Democrats, when I discovered that it was listed as “already debated”—I have explained my position—I said that I would not speak to the amendment but that I would bring it back on Report. Out of courtesy to the Liberal Democrats, having been asked a question from the noble Lord’s noble friend, I gave an answer. I would like to proceed to the amendment before the House, but we will return to this matter.
Lord True
My Lords, I shall now address Amendment 33A, which, alongside Amendment 33, which addresses the Liberal Democrat question, addresses a glaring defect in this legislation. I am sorry that the noble Lord, Lord Grocott, is no longer in his place. I have tried to persuade him before now, outside of this House, to address the point that Amendment 33A seeks to address. I do not wish to see this Bill proceed for wider reasons, but if it does, it will lead not only to the creation of a wholly nominated House—a point made by the noble Lord, Lord Adonis, and one that I have made—but, as alluded to earlier in our discussions, to a rebalancing over time of political strength in the House.
The noble Lord, Lord Grocott, is returning. I apologise for having said that he was not in his place. I do not wish to repeat to the House, but I made the point that the noble Lord and I have discussed outside the House the Bill’s impact on the political balance in the House over time. The position is that, because of the way the colleges came into being—I was involved in the negotiations in 1999—the hereditary peerage currently constitutes I think 48, at the moment, although 49 is the normal number and maybe that has just changed, of the total Conservative strength. Some 20% of the Conservative Party’s strength in this House—the party of government—is provided for by hereditary Peers as a result of a historical, or I might call it incremental, evolution of the nature of the House.
Lord Snape
On that point, would the noble Lord reflect that back in 1945, when the Attlee Government were elected by a very substantial majority, there were I think six hereditary Labour Peers in this place? The vast majority of the Liberal Democrats, who he complains about, were created by a Conservative Prime Minister during the coalition. It seems that his main source of complaint about political imbalance in this place is based on the fact that there would be a dilution of the centuries-old Conservative majority.
Lord Northbrook
Quite a few Lib Dem Peers were created under Tony Blair’s Government.
Lord Snape
I am not quite sure who is intervening on who here, but I was one of Tony Blair’s Peers. I remind the noble Lord that when Tony Blair was elected in 1997, with a very substantial majority indeed, much of the legislation in the early part of that first Parliament was blocked by the Tory majority in this House. “Tony’s cronies”, as they were known, pale into insignificance compared with the number of Peers created by David Cameron during his period. He said openly that this House should reflect the majority of the Government of the day in the House of Commons and behaved accordingly. We should have a bit less of this point from the noble Lord, Lord True. He should come back to reality and stick to his amendment.
Lord Snape
That is what Parliament is for, though the noble Lord might not agree with it. He might not have conducted himself in the same way when he ran that local council—but that is the way this place works and he should get used to the fact.
Lord True
The noble Lord imputes to me things that I do not agree with. I have given way to him twice and enjoy his interventions. It is only that if he makes an intervention, it requires a courteous answer from me. That is the point that I was trying to make—not that he was not right to intervene.
I shall come back to my fundamental point, but I have to address the point that the noble Lord made. The historical position in 1945 was entirely different. There were no life Peers; there was a historic House, with, yes, a huge preponderance of Conservatives, partly as a result of the Irish home rule debate and partly as a result of the rise of the Labour Party, which gave great service, and still gives great service, to this country. There was an imbalance. That was addressed within that House by convention and by mutual respect—the kind of thing that the noble Lord, Lord Jones of Birmingham, spoke about earlier that enables the House to work: fairness. The great reforming Labour Government of 1945 changed Britain with the acquiescence of the House of Lords, notwithstanding the numbers. That is the historical reality.
I do not think that it is really relevant to the present position, which, to return to the argument that I was trying to make, is that 20% of the Conservative Party’s strength in this House is made up of hereditary Peers. We have heard distinguished contributions from the Cross Benches today. Sixteen per cent of their strength in this House, because of the way the colleges were agreed in the negotiations with the noble and learned Lord, Lord Irvine, is made up of hereditary Peers. In the case of the Liberal Democrats, it is 4% or perhaps 5%, and in the case of the Labour Party it is 2%. The raw numbers are different. We would lose over time on our side 49; the Labour Party would lose four—a difference of 45 net votes. That would obviously have an effect on the composition of the House. Meanwhile, the majority of the House is saying perfectly reasonably—I do not happen to agree with the argument—that the numbers of the House should be limited. I agree with the Prime Minister’s restraint in creating new peerages; David Cameron created far too many—perhaps including this one.
Lord True
He created 354 Peers, my Lords. Again, we do not want to get sidetracked, but I will send the noble Lord the figures.
If this Bill goes through, there would a disproportionate attrition in the numbers of Conservative Peers and Cross-Bench Peers at a time when the call from everybody in the House is not to create new Peers and to limit the number to 600. The effect of the Bill would be noticeably to reduce over time the proportion of Conservative and Cross-Bench Peers in the House. That is a perfectly reasonable aspiration of the parties opposite, but it is not a proper effect of a Private Member’s Bill. I have therefore suggested an amendment which, in this transitional period when we are told that great new incremental reform is coming after the Burns report, provides that, so long as the reforms proceed and if this Bill goes through, there should be an understanding—just as there was an understanding in 1999 that if a Labour Peer died, the Conservatives would vote for a Labour Peer under the Carter convention.
To avoid that disproportionate effect, whereby the Conservatives would lose nearly 50 out of 250 Peers whereas Labour would lose four out of nearly 200, there should be provision for a life peerage to be created, rather than election to take place, so that there would be a steady state in political strength in this House. That would ameliorate the political impact of the Bill of the noble Lord, Lord Grocott, the effect of which I and many others believe—I am not entering into the question of the hereditary peerage, although, as noble Lords will know, I have my views on it—would be to create a disproportionate political strike over time at two parts of the House: the Conservatives and the Cross Benches.
Lord Adonis
I think that the Conservatives currently have 60 more Peers than the Labour Party. Does the noble Lord regard that as fair? Surely, we should get to parity—which I believe was the convention established when the House of Lords Act was passed in 1999—before his amendment takes effect.
Lord True
There is an argument there. As I understand it, the convention is that the governing party should not have a majority over the opposition parties—and we certainly do not have that on this side. I do not know whether the noble Lord, Lord Adonis, was present during the debates on leaving the European Union, but he may well have noticed, in the course of those debates, that the Conservative Party did not command an overwhelming majority in your Lordships’ Chamber.
Lord Adonis
My noble friend Lord Grocott knows these things because he was Chief Whip, but I do not believe that the Labour Party was the largest party in this House until a few years before it left office. Even after the passage of the 1999 Act, for some years the Conservative Party was still larger. Is the noble Lord seriously suggesting that the Conservative Party needs a buffer of 50 or 60 seats in order to deal with the disunity in its own ranks?
Lord True
The noble Lord is suggesting that, and of course it is utter nonsense. I will not follow on with what I am tempted to say, because it is very rare that the noble Lord speaks nonsense. The reality is, of course, that in time there will be attrition. I believe that anybody who has the honour of being Prime Minister should have regard to balance. I had the honour of working in the Administration in No. 10 under Sir John Major, and it was put to Sir John frequently at that time that it would be good to have more Labour creations. I think that the failure to have more Labour creations at that time led, probably indirectly, to the anger that caused the 1999 Act. Of course, there should be fairness as well as restraint in creation, and I think that the Prime Minister is trying to have that.
My point is that I do not think that there is a principle of friendship and comity across the House for a majority in the House which is not the Conservative Party—although many might agree with it. I am sorry if they do; I try to persuade them. But I do not think that we should pass legislation—and I could not support legislation—the back door of which would be to strike heavily at the political strength of the Conservative Party, the governing party. It would cut the number from 250 to 200—which the noble Lord, Lord Adonis, said he would welcome. Yes, it would be over time, but I remind the House that, I think, 20 Conservative hereditary Peers are already over 75 and a number are over 85, and the effect will take place.
I have prolonged my remarks because of interventions. I think that the principle is clear: I believe that, if the House wants to proceed with legislation, an element of fairness towards the Conservative Benches and the Cross Benches could be achieved by including an amendment of this type. I beg to move.
Lord Grocott
Perhaps I could clear this up with a couple of facts. On the question of the party strengths in the House of Lords, I do not think that the noble Lord, Lord True, need worry too much about a Conservative leader ensuring that their party strength in the House of Lords remains strong. By way of illustration, the Labour Party was elected with a huge majority of 157 in 1997, at which time there was a colossal majority of some 200 or 300 Conservative Peers in the House of Lords. Many of them—90% of them—went in the 1999 Act and we have only the cream left: the 10% who were elected, the noble Lord, Lord Trefgarne, and the noble Earl, Lord Caithness, among them. However, it was in 2006, nine years after the Labour Government were elected, that Labour became the biggest party, although obviously not the majority party. So the Tories were the biggest party for the first nine years of a Labour Government with a majority of 157 in the House of Commons. The noble Lord need not worry: the Tories are much better at making sure that they have friends in this House. Does he know how long it was after the 2010 election before normal service was resumed and the Tories were the biggest party again? It was just two years: by 2012 the Tories were the biggest party. So if the noble Lord, Lord True, is having sleepless nights about Tory leaders not appointing enough Tory Peers, I think that he can sleep well.
On the other crucial fact, with respect, talk about making a mountain out of a molehill over the disproportionate effect of my Bill on the future composition of parties in the House of Lords! I have been doing calculations on a sheet of paper while the noble Lord has been talking and just for the record, since the 1999 Act there have been, I make it, 34 hereditary Peer by-elections, roughly one third of the total. Of those, nine were Conservatives. So over a period of 19 years, although he used the phrase “striking heavily” about the effect on party representation in the House of Lords, the Conservative membership would be down nine if my Bill had been in operation. Just for the record, the Labour Party would have been down two, so the net benefit to the Labour Party in opposition over the Government would have been seven Peers over 19 years. Once again, I suggest to the noble Lord that he can sleep well still, even with that anxiety hanging over him about the future.
The Earl of Caithness
My Lords, the reason for the figures that the noble Lord, Lord Grocott, mentioned is that when the elections took place in 1999, it was by and large the younger and most active hereditaries who were elected. It is not surprising that the gathering-in rate of Conservative hereditary Peers has not been as great as it is about to become. We are all getting older and my noble friend Lord True has raised an important point.
The noble Lord, Lord Grocott, said nothing about protecting the Cross Benches. He waxed lyrical about how a Conservative Prime Minister would be keen to protect these Benches but with the possible implementation of the Burns report ahead of us, we are talking about a size limit on the House along with the importance of keeping the Cross Benches. Perhaps he could tell us how the Cross Benches are going to keep their numbers up to those required.
Lord Judge (CB)
Before the noble Lord, Lord Grocott, answers that question, while I am not speaking on behalf of the Cross Benches—because nobody speaks on behalf of us—can the Cross-Benchers be left to look after themselves, please?
Baroness Hayter of Kentish Town
Perhaps I may make one small point. I apologise to my noble friend, having said that I would stay quiet all day. I want to say one thing about why the Labour Party so supports this amendment. It was never about the political balance in this House. In fact, it has been a Labour Party claim for a long time that the idea that because people whose fathers, grandfathers, great-grandfathers and sometimes great-great-grandfathers did service for this country and were therefore put in this House, their subsequent children, grandchildren and great-grandchildren should be here is one that we no longer find democratic. That is the reason why we support this Bill. We put the issue of any political balance on the very wide and strong shoulders of the noble Lord, Lord Burns, and when we are able to move to a smaller House, we will deal with it then. This is not the way to do it. The importance of the Bill is that it is incredible that in the 21st century, we are talking about having by-elections for people because of what their ancestors did.
Lord Adonis
My Lords, the incredible thing about the proposal before us is that we would entrench a wholly nominated Chamber of Parliament in perpetuity. My noble friend, whom I hugely respect, says that we support this amendment because it is in line with Labour Party policy. My noble friend Lord Grocott gave me a lecture earlier about how my position was inconsistent with that of the party. The Labour Party’s policy at the last election was:
“Our fundamental belief is that the Second Chamber should be democratically elected”.
I keep inviting my noble friend Lord Grocott to say whether he supports the Labour Party’s policy. Does he support a democratically elected House of Lords?
Lord Grocott
I am opposed to it being directly elected. In answer to my noble friend’s question: yes, believe it or not, after 60 years once in a while it may be the case that I do not say that I agree 100% with my party’s policies. Can he remind us how long he has been in the Labour Party and how often he has disagreed with the party manifesto?
Lord Adonis
My Lords, I have been in the Labour Party for 24 years and I have voted against the Whip less often than my noble friend has in recent Divisions on European Union legislation. I do not take any lectures from my noble friend about party loyalty. He said to me earlier that he thought I was sitting in the wrong place in the House because I supported Labour Party policy. My noble friend appears to support an extreme version of the Conservative Party’s policy, which is for a nominated House in perpetuity. Maybe he would wish to cross the Floor. Let us keep this debate in proportion. We are talking about very specific amendments—I am drawing my remarks to a conclusion—to very minor legislation, but which would have a very major impact: it would entrench in perpetuity a nominated House, whereas the right reform is not to tinker with second-order issues of this kind but to engage in a proper democratic reform of the House of Lords, which happens to be the policy of the party which my noble friend Lord Grocott and I support.
Lord Rooker (Lab)
If my noble friend will allow me, what it would entrench in perpetuity is the sovereignty and superiority of the elected House of Commons, because that will get undermined the minute this place starts getting elected. It is as simple as that.
Lord Adonis
I completely respect my noble friend’s point of view but it is not the policy of the Labour Party.
Lord Adonis
My Lords, my noble friend Lord Rooker may not care and my noble friend Lord Grocott may say that he has complete licence to disagree with the party’s policy. I respect that but it is not the policy of the party, which is for a democratically elected House. Anything else is a departure from that policy. I respect it but it cannot claim any moral or political virtue at all.
Lord Mackay of Clashfern (Con)
My Lords, I wonder whether it aids the Bill in going forward that we have so much discussion of the policy of the Labour Party, or any other party for that matter. We want to get the Bill forward and the less irrelevance that comes into speeches, the more rapid will be the progress.
Lord Grocott
My Lords, I will say only one sentence. Due to my noble friend Lord Adonis’s passionate support for the Labour Party manifesto, I look forward very much to him telling us that he strongly supports the commitment in its last manifesto to respect the result of the referendum. I really cannot resist that.
Lord True
My Lords, having heard my noble and learned friend Lord Mackay of Clashfern, I shall not follow the noble Lord, Lord Grocott, down that road, but the noble Lord, Lord Adonis, is not alone in not adhering to the Labour manifesto policy on that matter. I am disappointed by the reaction. I do not believe this Bill is the right construction, and I oppose it in principle because it has the effect, as the noble Lord, Lord Adonis, rightly said, of entrenching a nominated House. It is true that in the interests of fairness my amendment would, for a temporary period until reform, lead to a life Peer replacing a hereditary Peer, and he or she would be a nominated Peer. However, that is not the purpose of my amendment in the long term. I have every sympathy.
It is interesting that whenever a noble Lord stands up in your Lordships’ House and even entertains the idea of an elected House of Lords—the noble Lord, Lord Tyler, is familiar with this, as am I—a sort of posse, often led by the noble Lord, Lord Rooker, rises with a mugging party and says, “It shall not be”. The reality is that almost everyone here who is a life Peer wants to stay and believes the House is absolutely perfect as it is and that we should not have any reform. Yes, we can talk about little bits of increment but never reform. That is the reality of the position. I am sorry to say to the noble Baroness, Lady Hayter, that I do not accept her comments. She is right to a point to say that it is an atavistic and understandable wish of the Labour Party and socialist movement more generally to eliminate the hereditary Peerage in Parliament. It is a perfectly respectable wish that can, and I am sure will, be accomplished one day by a Labour Government because that is the way our democracy works. My basic submission, however, is that it should not be accomplished by stealth in a Private Member’s Bill that entrenches an all-appointed House. The noble Baroness, Lady Hayter, did not address that point. She returned to the evasion which the noble Lord, Lord Grocott, has continually used, saying that this is just about ending by-elections. It is not just about ending by-elections; it is about, over time, creating an all-nominated House. For those who wish to achieve something, there is a piece of Virgil—I shall not quote him because it is not right—that states that often those who wish to achieve something weave a different pretext for it.
My noble friend is rising to tell me that it is all about incremental reform and I will hear it again.
Lord Cormack
His noble friend is rising to say that if everyone is trying to come clean on things, will he please come clean and say that his policy is for the abolition of this House and its replacement by something totally different? That is a valid and respectable point of view, but that is his point of view. Mine is the opposite.
Lord True
I definitely respect that, but since I do not share his opinion that all will necessarily be hunky-dory once hereditary Peers go, it is perfectly legitimate for me to point out my point of view, and I will do it as often as I am invited to by my noble friend, who frequently reminds us of his own position. I do not necessarily think this Chamber would be made more effective by the removal of the hereditary Peerage, but that is not what I am arguing.
I am disappointed by the reaction to the amendment. The fact is that the effect of the Bill over time, whatever the noble Lord says, will be disproportionate. The noble and learned Lord, Lord Judd, said the Cross Benches could look after themselves, and of course they can. I am sure the hereditary Peers on the Cross Benches may well disagree with me when I say it is a pity that they are going. I will speak only from my point of view as a Conservative: I believe a Bill that would result in 20% of the Conservative strength in this House being removed over time is a political Bill and an unfair one.
I believe the Bill could be improved by the amendment; I think equity would be restored. The amendment would not stop the noble Lord’s Bill to abolish hereditary by-elections. It would permit him and the Labour Party to achieve their objective; it just asks for temporary political equity. I think it is mean-minded to reject it out of hand, and on these political grounds I wish to test the opinion of the House.
Lord Adonis
“Election of hereditary peers
(1) The House of Lords Act 1999 is amended as follows.(2) At the end of section 1 (exclusion of hereditary peers) insert “, except a person who fulfils the requirements of subsection (2).(2) A person fulfils the requirements of this subsection if—(a) there is a vacancy amongst the 90 hereditary peers excepted under this Act;(b) the person is a holder of a hereditary peerage; and(c) the person is elected by the persons who, on the date of the election, would be entitled to vote as electors at a parliamentary election.(3) The Secretary of State may by regulations made by statutory instrument make provision for and in connection with the provision of an election under subsection (2). (4) A statutory instrument containing regulations under subsection (3) may not be made unless a draft of the instrument has been laid before and approved by a resolution of each House of Parliament.””
Lord Adonis
My Lords, Amendment 35A had an unusual genesis. I sought to table amendments to the Bill to provide for an elected House. As I have now said several times in my fundamental commentary on the Bill, that is the big issue before Parliament and should be addressed sooner rather than later. The clerks said that it was not possible, within the scope of the Bill, to move for elections which involved members of the public being elected. However—wait for it—it was within the scope of the Bill to make it possible for the public to elect hereditary Peers from the register when a vacancy arose. That is why the Committee has before it an amendment providing that, in future, the entire national electorate would vote when hereditary Peer vacancies arose.
I am not proposing this as a serious proposition for the future composition of your Lordships’ House, but I unapologetically move the amendment because it puts into the debate the central issue of moving from a nominated/hereditary House to a democratic one. I have always believed that we should do so. I believed it when I was writing the constitutional reform policies for the Liberal Democrats and when I was advising Tony Blair on constitutional reform. My noble friend Lord Grocott and I disagreed all the time about this fundamental issue.
My noble friend has, as I see it, a very conservative view of the constitution, which is basically that the constitution circa 1950 was jolly good and we should not make any changes. My view is that we should carry on modernising; part of that is more democracy, which means really substantial devolution, a fair voting system and a democratic second Chamber. Those, to my mind, are fairly sensible propositions that, sooner or later, we will have to address as a country. The reason I believe that they have much greater urgency than before is that the whole context in which constitutional reform is now being debated is that of the single biggest constitutional reform this country has undergone in the last half-century, and that is Brexit.
In my travels across the country, which I have been engaged in intensively in recent months, I can tell the House that—as many noble Lords will know from their own communities—there is intense discontent at the state of governance in this country at the moment. It is particularly intense in the Midlands and the north of the country, where there is a great sense of alienation from the centres of power and a significant feeling that parliamentary institutions are not working effectively. There are many things that I believe need to be done to address that. My own view is that we should have significantly more devolution—part of the problem in the Midlands and the north is that we have inadequate devolution. We had good devolution settlements for Scotland, Wales, London and, when it was operating, Northern Ireland, but we have only scratched the surface of devolution in the Midlands and the north and we need to address that seriously.
Reform of Parliament has a part to play in that too. The conclusion that I have reached—though I put this forward tentatively and believe that we should have a constitutional convention to discuss it—is that we should now have a democratic second Chamber, either directly elected or representing the devolved elected institutions of the country. I think an argument can be made either way for a directly elected second Chamber, as in Australia, for example, or an indirectly elected second Chamber, representing what would become a federal structure of the United Kingdom, like the Bundesrat in Germany. There are arguments for and against, but what there is no argument for, in my view, is a perpetuation of a wholly nominated second Chamber, which, by the way, we got by accident.
We got to a wholly nominated second Chamber through a series of incremental reforms to what was a hereditary House. No one at any stage set out to create a wholly nominated Chamber. When Harold Macmillan introduced the then Life Peerages Bill in 1958, it was to complement what was still predominantly a hereditary House. Indeed, ironically, a large part of the reason he introduced the Bill was that members of my party, the Labour Party, were quite rightly not prepared to accept hereditary peerages. Lord Attlee, much sainted in the memory of my party, was one of the very last members of the Labour Party to accept a hereditary peerage; others simply would not do so. As part of a classically Tory attempt to keep the House of Lords going at all, the Life Peerages Act was passed.
We have had a substantial debate on what happened in 1999 and 2000; I know about it intimately because I was advising Tony Blair at that time. We gave firm commitments that the nominated and part-hereditary House that would replace the substantially hereditary House that applied before 1999 would be interim. It was deemed interim in the report of the royal commission chaired by the noble Lord, Lord Wakeham, which of course recommended a predominantly elected House. For various reasons, not least the strong advice of my noble friend Lord Grocott, who was always passionately against any public elections to this House, those proposals were not taken forward, which I believe was a mistake.
Lord Grocott
I can live with a certain amount of total misrepresentation, but there comes a point where it is impossible for me to remain seated. At no stage have I said to the noble Lord in private or in public anything other than the fact that I am opposed to a directly elected House. He is a clever chap who no doubt would be happy in a university; he knows that that does not rule out an indirectly elected House, nor a House that is more representative of important interests across the nation. There are a whole range of other options. My fixed position—this is the only part of his long speech that has been accurate about me—is that I am opposed to a directly elected House for precisely the same reason that my long-standing noble friend Lord Rooker explained to him: it would be a threat to the House of Commons. He has never been elected to the House of Commons, never been an MP or anything of that sort, so he does not understand how fundamentally a directly elected senate would be a threat to the powers of the House of Commons.
Lord Adonis
My Lords, I defer to my noble friend’s greater understanding of these issues. However, it is not the case that an indirectly elected House that represented the nations and regions of this country would not be a powerful House. If my noble friend wishes himself to go and spend time in a university, he needs to go and study the operation of the Bundesrat in Germany, which is a substantially powerful institution, because it represents the elected state Governments of the Federal Republic of Germany. If my noble friend’s concern is about having a stronger second Chamber, any of these options would lead to a substantially stronger second Chamber than we have at the moment, and that would of necessity take power away from the House of Commons, which would be a very good thing.
These are issues which we should be debating as a country, and which the public wish to see debated, because they want to see more substantial power brought to them. It is a particular issue in the Midlands and the north of this country, where the sense of alienation is greatest and, I might add, if you look at the statistics, those regions are least well represented even within this nominated House. Eight per cent of the Members of your Lordships’ House come from the north of England; 15% of the population comes from the north. London and the south-east are almost twice overrepresented in this House if you compare the number of Members of this House with the population of those regions.
There are fundamental problems with the operation of this House, which will not be dealt with—I say with great respect to the noble Lord, Lord Cormack—by minute, incremental reforms. They require fundamental reform. The Brexit crisis that we are now going through puts fundamental constitutional reform on the agenda. The time is right to address it now and not to engage in tinkering reforms of this kind, which will simply entrench a nominated House.
Lord Low of Dalston (CB)
Instead of addressing us at some length on the rationale for his amendment, could the noble Lord possibly answer an important question about the process or the mechanism by which it would operate? As I read the amendment, it says that whenever a vacancy occurs by reason of the death—or, I suppose, the resignation—of a hereditary Peer, the whole panoply of a general election has to be mobilised to fill this one vacancy. Is that really what the noble Lord’s amendment suggests?
Lord Adonis
My Lords, this is such a well-crafted amendment that it would make a fundamental reform of this House unavoidable, which was the original purpose of the undertakings given by my noble and learned friend Lord Irvine of Lairg during the passage of the 1999 Act. He saw at the time, and we agreed, that this would be a poisoned pill in the composition of the current House of Lords that would make the creation of a democratic House unavoidable. That, alas, has not happened in the last 20 years. I greatly regret it and I accept some measure of responsibility for the fact that the Government of which I was apart did not succeed in carrying through its proposals for a fully elected House. But I am afraid that the party opposite did not succeed in it, and that the noble Lords on the Liberal Democrat Benches, who claim to be most powerfully in favour of these reforms, also failed when they were in government. So in different ways, all the parties in this House have failed.
That failure, and the failure of wider constitutional reform of which it is a part, is a substantial part of the reason why we are going through the current Brexit crisis. We need to address it, and I would much rather do so by fundamental changes and improvements to the constitution of the United Kingdom than by wrenching this country out of the European Union.
These issues cannot be ducked, and we certainly cannot sweep them under the carpet with tiny, incremental changes of the kind which my noble friend Lord Grocott is proposing, so I beg to move.
The Earl of Erroll
My Lords, I rise to support this amendment because it introduces the concept of democracy. As I have said, I would like to see democratic reform of the House of Lords. As for the practicality of it—as has just been raised by my noble friend Lord Low—with online voting coming, I am sure, and with modern electronic methods, we do not need a sort of general election set-up with lots of voting polls. Things will be handled electronically online, and this is an interesting way of introducing some democracy and accountability. I support the amendment.
Lord Rooker
Such Members as would be elected under this amendment would not be bound by the conventions of the House. That is the fundamental issue. I cannot take seriously people talking about reform in terms of the composition of the House. They completely ignore the functions and powers of the House. We cannot have the existing powers and functions of the House unchanged and then impose an election on it—under that structure there would be no dispute resolution between the two Houses. At the present time, the Commons always has the last word. That is my telling point when I take part in Peers in Schools. We are not equal Houses. The Commons always has the last word. Very occasionally it might have to wait a year, but the fact is it always has the last word because it is elected. It is as simple as that.
If, like Nick Clegg, one refuses to accept the discussion about the functions and powers of the House and only wants to change the composition process, that will lead to absolute chaos in the governance of the country. I cannot take seriously those who say we want an elected second Chamber, because they completely ignore the two fundamental things that have to change. Before we get elected to this House, we have to know what we are going to do when we get here. It is no good saying: “Oh, we’ll change it afterwards”. If we get an elected second Chamber, the first thing the elected Peer will say is, “I’ve got a mandate. Open the cupboard. What are my powers? I can chuck out this Bill from the Commons. I don’t agree with it—I don’t have to scrutinise anything because I’ve got a mandate”. There would be no dispute resolution. I cannot take such ideas seriously.
Lord Cromwell (CB)
Whatever one’s view of the amendment, and of the view of the noble Lord, Lord Adonis, of an elected Chamber, I think he indicated in his opening remark that this is a frivolous amendment. Can we not just knock it on the head?
Lord Grocott
My Lords, I think I have a responsibility to respond, as this is an amendment to a Bill I introduced. I suppose I should be grateful to the noble Lord, Lord Adonis, for changing his mind so dramatically in the space of an hour; we are all entitled to change our minds. However, he gave us a little lecture an hour ago about the inadequacy of my Bill, saying it should be opposed because it was pointless and incremental, and he now puts down an amendment providing for the preservation of hereditary peerages, just elected by a different mechanism. I have to agree that it is not merely a frivolous amendment, as the noble Lord, Lord Adonis, himself has acknowledged; it is a silly amendment, and I hope the House will throw it out.
Lord Adonis
My Lords, I do not propose to press the amendment at this hour, given how thin the House is, having thinned out progressively over the last two hours. However, I believe the issue of a democratic second Chamber is the fundamental issue which we need to address in this House, not tinkering reforms of the kind we have been debating over the last few hours. I beg leave to withdraw the amendment.
House of Lords (Hereditary Peers) (Abolition of By-Elections) Bill [HL]
Friday 23rd November 2018
(6 years ago)
Grand CommitteeRead Full debate House of Lords (Hereditary Peers) (Abolition of By-Elections) Bill [HL] 2017-19 Read Hansard Text Amendment Paper: HL Bill 2-III Third marshalled list for Grand Committee (PDF) - (21 Nov 2018)
The Deputy Chairman of Committees (Baroness Henig) (Lab)
My Lords, if there is a Division in the Chamber while we are sitting, this Committee will adjourn as soon as the Division Bells are rung and will resume after 10 minutes.
Clause 1: Abolition of the system of by-elections for hereditary peers
Lord Trefgarne (Con)
My Lords, in rising to question the proposal that Clause 1 stand part of the Bill, I take the opportunity to put a question to the noble Lord, Lord Grocott. The noble Lord is, of course, a very senior and distinguished member of the Labour Party and doubtless attended the party conference in Liverpool, I think it was, earlier this year where among the policies decided upon, as I understand it, was an early general election. If that happens this Bill would sink without trace, so presumably the noble Lord does not support the idea of an early general election. Will he clarify that for us?
Lord Grocott (Lab)
My Lords, this Private Member’s Bill being committed to a Grand Committee is in the nature of an experiment. It is clearly a hugely successful one. This must be a record attendance at a Grand Committee. The usual channels may consider this an important precedent that might be useful on other occasions.
I am very glad that the noble Lord, Lord Trefgarne, has mentioned elections because what makes this Bill particularly important is an impending parliamentary by-election which will take place on Wednesday when we will have a new Member of the House of Lords elected by 16 people. As the noble Lord knows, the electorate is 31 people, so the mathematicians will be able to work out that 16 votes will be enough to get someone elected. In most parliamentary by-elections some 20,000 votes are needed for a new Member of Parliament to arrive. I simply say to the noble Lord, Lord Trefgarne, that Clause 1 needs to stand part. If it does not, 50% of the Bill will be gone. It is a two-clause Bill that has so far attracted I think 75 amendments. I urge the noble Lord to let the matter go so we move on to the detailed discussion of Clause 2.
Lord Trefgarne
Against that reply, I assume that the noble Lord, Lord Grocott, is not in favour of an early general election, and nor am I.
The Earl of Caithness
The Earl of Caithness (Con)
My Lords, I shall speak also to a number of other amendments as shown on Marshalled List.
There are three or four quite important amendments that we need to discuss on this clause. The first amendment I draw to your Lordships’ attention is Amendment 39. It would affect the Short Title of the Bill. I propose that the words “Abolition of By-Elections” are left out. The reason for that is that the Bill gets rid of hereditary Peers. It starts by getting rid of the by-elections and, in due course, as hereditary Peers die off, there will soon be no hereditary Peers left in the House of Lords. The Bill should have the title “House of Lords (Hereditary Peers) Bill” because there will not be another Bill to get rid of the hereditary Peers if this Bill proceeds and we wither on the vine.
The second amendment to which I draw your Lordships’ attention is Amendment 42, which states that Section 1 should not come into force until,
“the Secretary of State has commissioned an independent review of the benefits that hereditary Peers bring to Parliament”.
One of those important benefits is that we are not appointed by the Prime Minister. The noble Lord, Lord Grocott, accepted my amendment that acknowledges that the Bill is designed to produce a purely appointed Chamber, on the whim of the Prime Minister’s patronage. We will come on to patronage a bit more in due course, because it is a matter that my noble friend Lord Young—then Sir George Young—did not like when the other Bill went through the Commons in 1999.
Amendment 43 makes another condition—that there ought to be a vote of excepted hereditary Peers before the Bill becomes an Act. I tabled that amendment because the noble Lord, Lord Grocott, is arbitrarily unpicking an agreement we had signed up to that was binding in honour until stage 2 came along; I wish that stage 2 had already happened. The people who will suffer from this are the hereditary Peers, so it seemed only sensible that a vote should be taken among them on whether they were happy that the agreement should be broken.
Another amendment that I wish to talk to briefly is Amendment 58B, which concerns the size of the House. We will talk about that a bit more when we come to the amendments on the Burns report, but this amendment states that the Bill should not become an Act until,
“steps have been taken to ensure that the membership of the House … does not exceed 600 in, or after, the year 2030”.
That is about the same time as the Burns report proposed that that figure should come about, but it would be a big step towards stage 2. When the House is limited at 600, that should be the time when the hereditary Peers’ by-elections should cease. I beg to move.
Lord Balfe (Con)
My Lords, I will speak only once, because what I have to say applies to the whole Committee. Some noble Lords were at what I think of as the Norton-Cormack meeting the other day, which Bernard Jenkin from the House of Commons addressed by saying that if the Bill were passed he would do his utmost to get it through the House of Commons. That is important for your Lordships to note, because often Bills from this House do not go smoothly through the House of Commons.
I am amazed at the tactics used on the Bill. They are self-destructive and against the interests of the hereditary Peers in this House. The only Labour leader I ever regarded as a friend was the late John Smith, who of course sadly never became Prime Minister. He once said to me that the worst job he had was, as he put it, with the queue of supplicants down the Corridor seeking to help the Labour Party by taking a seat in the House of Lords.
There will be a change of government one day—that happens in democracies—and the Labour Party will come into power. At the moment, it has 186 Peers including four hereditaries, and our side of the Chamber has 248 Peers including 47 hereditaries. Any Labour leader who wanted, first, to strike a radical pose, and secondly, to get himself out of a lot of people supplicating for membership of this House, could pass a simple Act that would have enormous popularity in the country: the abolition of the legislative rights of hereditary Peers. That would not take the title away, but it would take away the right to sit in the House of Lords. That would quickly change the arithmetic to there being just 201 Conservatives and 182 Labour Peers. That would put us well on the way to what is not an illegitimate aim for the governing party of the day; that is, to have slightly more seats than the principal opposition party of the day.
The late Jim Callaghan was fond of talking about turkeys voting for Christmas. I wonder whether the hereditary Peers, who seem to be the only ones backing this move, have actually thought it through. What is principally being discussed, particularly on the ultra left of the Labour Party, is the idea that perhaps they should go for abolishing the House of Lords. However, there are now two sorts of people on the ultra left of the Labour Party. There is the Jeremy Corbyn faction which believes in principle above everything else, but probably more important is the John McDonnell faction. John McDonnell believes in achieving his aims progressively. I think that the John McDonnell faction is quite happily in favour of this Bill being stalled in this place because it gives him a good cause for putting into the manifesto the abolition of the legislative rights of hereditary Peers.
I have said that I will speak only once, but my overall conclusion is that hereditary Peers are shooting themselves very firmly in their own feet.
The Earl of Kinnoull (CB)
My Lords, those are very interesting words and most certainly worth reflecting on. I thank the noble Lord. I rise to speak to Amendment 58D, tabled in my name. It concerns the Prime Minister’s prerogative. In my Peers in Schools programme visits, we inevitably and rightly discuss the composition of the House and the routes of entry. Three issues are raised consistently by the pupils: obviously the hereditaries, the Bishops and the Prime Minister’s prerogative. In respect of the prerogative, it seems that the relevant set textbook makes the point that there is no other country in the developed democratic world where one person has so much power over the membership of the legislature. Indeed, as the discussion generally continues, the view seems to develop in all the classes that I can recall that the Prime Minister’s prerogative is by far the largest constitutional issue of the three.
This House considered the matter recently as part of the annual Burns committee initiative, and last December more than 90 Members spoke. As we will all well recall, the overwhelming mood was one of great support for the Burns committee, and accordingly of curbing the Prime Minister’s prerogative. Indeed, the Public Administration and Constitutional Affairs Committee of the other place reported on 19 November on the matter. In a powerful analysis of the Prime Minister’s prerogative, it concluded at paragraph 35 of its report:
“It is important that the Prime Minister commits to the proposed cap and to limiting appointments in line with the proposed appointment formula”.
There are 791 Members of the House, of whom 178 do not owe their membership to a Prime Minister. That number is comprised of 26 bishops, 89 hereditaries and 63 Members who have come in through the House of Lords Appointments Commission. Some 613 Peers have therefore been appointed under the prerogative power, which is around 80%. I strongly believe that this dynamic represents a constitutional risk in that the prerogative is so concentrated in one person. That risk should be managed, and this Bill clearly represents a route whereby one might attempt that. However, as currently drafted, the Bill would increase the risk over time by removing half of the non-prime ministerially appointed buffer, although other dynamics are also in play to exacerbate matters.
I very much admire HOLAC. Its chairmen have crafted a first-class institution. It is, however, being somewhat smothered. In its first period under Labour Administrations between 2001 and 2010, 52 Peers were appointed in just over 10 years. That is an average of pretty well exactly five per year. In its current period under Conservative-led Administrations there have been 15 appointments, including three last June. That is an average of just under 1.8 per year. Actuarially, one would need three to four a year to maintain the current number of 63 HOLAC Peers. Accordingly, the HOLAC part of the buffer that is not appointed by the Prime Minister is shrinking. As I said, this Bill would see other parts of the buffer shrink further.
Lord Rennard (LD)
My Lords, I obviously agree with other noble Lords that we really need full reform of the House of Lords, but that is not on offer. That we cannot have full reform of the House of Lords is no reason to say that we cannot make progress on more limited reform. In examining this group of amendments, I thought I would look at the dictionary definition of “amendment”, which says that an amendment is:
“A minor change or addition designed to improve a text or a piece of legislation”.
I respectfully suggest that no amendment in this group remotely fits that dictionary definition of what an amendment is. The amendments in this group do not seek to be minor or to improve the text in any way. They seek simply to delay discussion on perhaps more important matters, to filibuster this debate and to prevent any progress on the legitimate issue. That is wholly wrong and brings the House into disrepute when we are debating things to prevent Members in the Commons voting on issues such as this. We should proceed with the Bill to allow them to have their say on it.
With great respect, the noble Earl, Lord Caithness, is wrong to suggest that if the Bill was approved it would mean that we simply ended up with a wholly appointed House on the whim of a Prime Minister. He ignores the very important role of the independent House of Lords Appointments Commission, which does not appoint people on the whim of the Prime Minister. I also respectfully suggest that other noble Lords are at present appointed on what might be called the whim of party leaders, but they are at least elected party leaders who have faced the electorate. To suggest that it is somehow more legitimate to have people in this place because of the hereditary position is wholly wrong. They, of course, are here only on the basis of the whim of a previous monarch, perhaps some centuries ago, whom that monarch might have married, and then their eldest son, the eldest son’s son, et cetera. That is no basis whatever for any sort of legislature deciding on the laws of the land in the 21st century.
For those reasons, all these amendments should be rejected so that we can get on to more serious debates. We should have Report shortly in the House of Lords and allow the House of Commons to consider the Bill.
Lord Brown of Eaton-under-Heywood (CB)
My Lords, I will briefly address just two of the points that the noble Earl, Lord Caithness, made objecting to the Bill. The first objection is on the basis that the Bill would end the one part of the existing process for the creation of new Members that is democratic because it depends on election rather than appointment. I can perfectly well understand, though I profoundly disagree with, those who argue for an elected House rather than an appointed House. What I fail utterly to understand is why it should be considered less objectionable—indeed, considered a partial answer to those opposed to an appointed House—that 92 of its Members and those who currently elect their successors come from a privileged class of hereditary Peers who, alone, are candidates for election. This is what the noble Lord, Lord Grocott, and, indeed, I in the past, have called the “assisted places scheme”. It is nonsense. It is hardly going to persuade those in favour of democracy that: “Ah, we meet that test now; we wouldn’t if this Bill went through”.
The second point is in relation to Amendment 58B: the suggestion that we wait until we are down to 600 before we implement the Bill. Under the Burns proposals, which are the route by which we hope to reduce the House to 600, those who leave by death or retirement are to be replaced—initially one for two, later one for one—by new members of the same party, so if hereditary elections remain, Tory slots in future would sometimes inevitably have to be filled by hereditaries wherever there is a gap. That would reduce the number of new Members whom the party leader might otherwise prefer to be in the House. If this Bill passes, therefore, and the Burns scheme succeeds in reducing us to 600, the Tories will not lose in numbers but will gain in the choice of who fills the available slots. If the Bill fails, hereditaries will form an ever-larger part of the Tory group. Is that really what they want?
Baroness Hayter of Kentish Town (Lab)
There is only one point I want to raise, other than to say that of course we want a general election. Actually there are two issues. One, which the noble and learned Lord, Lord Brown, has just mentioned, is the importance of refreshing this House not only with those who happen to be sons of people who, as the noble Lord, Lord Rennard, said, were appointed by a monarch or a Prime Minister. It will be important to refresh the House so that it is not just men who are appointed. That will certainly be the case for the Conservative Party which, otherwise, will end up very male-dominated.
My other point, from the point of view of the Labour Party, is on an issue that has been raised and which I have responded to before about the binding commitment. The binding commitment was, of course, not binding in law; it was binding until it was possible to change the composition of the House. I remind the noble Lord that that commitment was made in 1997. After we lost office, his party were in government in coalition from 2010 to 2015 and did not manage to bring in a change to the House, they were then not in coalition and did not do it, and they are now effectively in coalition again and are not doing it. The lack of commitment to changing the House means that a commitment made much earlier no longer has the standing that it had at the time.
Lord Grocott
My Lords, I am grateful to a number of noble Lords who have spoken in favour of the Bill, and I do not want to add to the points that they made. The noble Lord, Lord Balfe, shared a useful piece of information about the views of important people in the Commons in relation to this legislation. It gives me great heart if I am able to think that, should this House pass the Bill, as I very much hope it will, it would be a huge example to almost any other institution of an institution reforming itself in a sensible way.
I am grateful to the noble Lord, Lord Balfe, for that, and to the noble Lord, Lord Rennard, who mentioned the need for speed. These by-elections will take place with increasing frequency; that is the inevitable consequence of age. We are talking about people who were identified as the 90 in 1999. There have been 44 by-elections since then—or 44 new Members as a result of by-elections; some have been for two new Peers—but inevitably they will come with greater frequency. There are two in the pipeline. The need to get this Bill through is all the more urgent if we are not to be subject to, it seems to me, the reasonable accusation of looking completely ridiculous with some of these by-elections. The point made by the noble and learned Lord, Lord Brown, about the effect that an increasing proportion of the membership of the House being hereditary Peers will have on different parties is powerful.
I do not disagree at all with the noble Earl, Lord Kinnoull, about the need for a cap on the size of the House. I think very strongly that we should reduce the number of people here. But of course, if nothing is done specifically about the hereditary Peers—this is the point made by the noble and learned Lord, Lord Brown—it will be significantly harder to reduce the size of the House if there are 92 people to whom “two out, one in” does not apply. The stats in the second, most recent report of the Burns committee are quite clear. They are small numbers so one should not draw huge lessons from them, but they make it pretty plain that it is difficult to reduce the size of the House if hereditary Peers are being replaced one-for-one, whereas everyone else is being replaced on the basis of one in for every two out.
This is a big group of amendments and I urge the noble Earl, Lord Caithness, not to press them further, either here or on Report, as they would have the cumulative effect of delaying the Bill’s implementation. I will be kind to him today and say that he is not trying to wreck the Bill with these amendments—though it was hard for me to say that—but they would certainly significantly delay it. One or two of them are, frankly, close to being silly, such as the idea of reviews of the work of both Houses. But let us leave it at that, and I appeal to him not to press them further either here or on Report.
The Earl of Caithness
My Lords, this has been a useful discussion. I would only say to my noble friend Lord Balfe that I think the McDonnell wing that he mentioned will put into the manifesto exactly what he says, whether this Bill goes through Parliament or not. It was in fact in the 1997 manifesto that all hereditary Peers should go. It is something that I agree with, because I think that all hereditary Peers, and all life Peers, ought to go. That is what I say to the noble Lord, Lord Rennard: whatever the composition of a House that is not 100% elected, it is easily criticised. That is why I believe that 100% election is much the best way forward for a second Chamber in this country.
The noble Lord, Lord Grocott, did not answer me at all on Amendment 39. I wonder whether he might give that some thought between now and the next stage, because it would not delay the Bill at all; it would merely clarify exactly what the Bill does, which is to abolish hereditary Peers. Meanwhile, I beg leave to withdraw my amendment.
Lord Trefgarne
“(3) Section 1 comes into force on such day as the Secretary of State may by regulations made by statutory instrument appoint.(4) Regulations under subsection (3) may not be made until the Secretary of State has published a report outlining progress made towards the implementation of the recommendations in paragraphs 18, 19, 29, 35, 39, 41, 44, 45, 48-51, 53, 55, 66, 70, 74, 77, 81, 82, 96 and 97 of the Burns Report.(5) In this section, the “Burns Report” means the Report from the Lord Speaker’s committee on the Size of the House of Lords, published on 31 October 2017.(6) This section comes into force on the day on which this Act is passed.”
Lord Trefgarne
My Lords, I have one simple thought about this. It is the one expressed by my noble friend Lord Caithness a little while ago. He, I and others object to the Bill proposed by the noble Lord, Lord Grocott, because it breaches the undertaking given in 1999. The context of that Bill was the total abolition of the hereditary peerage. At some point during its progress—the noble Lord, Lord Grocott, was, I believe, involved in the discussions that went on behind the scenes; I most certainly was not—all hereditary Peers were going to be removed from the House of Lords. A deal was done involving, principally, my noble friend Lord Strathclyde but others as well. An undertaking was given “binding in honour” those who gave their assent to it. Those were the words of the then Lord Chancellor, repeated in the House and, I believe, elsewhere. It is an undertaking that I hope, on reflection, all political parties will continue to be bound by.
The Earl of Caithness
My Lords, I want to comment on the percentage of hereditary Peers, which the noble and learned Lord, Lord Brown, raised on a previous amendment. The best date the Library could give me figures for was 11 January 2000, just after the 1999 Bill went through, when the hereditaries comprised 13.89% of the House. As of March—I have not updated the figures since then—we comprised 11.66% of the House. When the House reaches a total of 600 Peers we would comprise only 15.33%. The percentage has gone down since 2000. That percentage will go up a bit, but I am very happy to discuss that point so that we keep the hereditaries at the same figure they are now.
Lord Grocott
My Lords, this group of amendments in various ways responds to the Burns report, which most of us welcome. They lay down all sorts of preconditions that this Bill cannot come into operation until sundry provisions of the Burns report have been implemented. We have been over the point made by the noble Lord, Lord Trefgarne, about the “binding commitment” in 1999 so many times. The inference of what he said is that my fingerprints were over that commitment. I can tell him exactly why the concession was made in 1999 that resulted in the difficulties we have had ever since with these by-elections. The Labour Government, with a colossal majority in the Commons, had the simplest possible statement of intent in respect of the House of Lords, which was to end the whole of the hereditary peerage—no ifs, no buts. However, as there was a huge majority of hereditary Peers—and Conservative Peers, although for this argument, that is beside the point—in this House it was plain that the legislation was not going to be admitted by them.
Worse than that, it became increasingly apparent that the rest of the Labour Government’s legislative promises to the electorate would not be able to be enacted because of the colossal amount of obstruction coming from the hereditary Peers at the time. That is the last time I am going to make that speech. It has the merit of being true. My good friend—and friend of many others here—Denis Carter, who was my predecessor as Chief Whip in the House of Lords, advised No. 10 and the Cabinet that there were real dangers to the Labour Government’s whole legislative programme. The settlement of 92 was obtained under duress—that is the only way in which it can sensibly be described. What is absolutely certain is that it was intended to be a short-term arrangement, yet here we are, 19 years later, debating at length—I shall make sure that my speeches are not at length—an end to what was intended to be temporary and is now 19 years old. Can we please not have that discussion ever again? I hope that the proposers of these amendments will agree not to press them further.
Lord Trefgarne
Perhaps it may be in order for me to say one brief sentence. The Government of whom the noble Lord was a distinguished member could have honoured the undertaking by bringing forward their own legislation to reform the House of Lords, which they chose not to do. They had eight or nine years subsequently in which to do that, but did not do a thing about it.
Lord Grocott
I fear that I am in danger of being bored; I do not know about anyone else. A Bill was introduced; it died in wash-up when the Labour Government were voted out of office in 2010. Subsequently, other efforts were made. The noble Earl, Lord Caithness, and the noble Lord, Lord Trefgarne, cannot say with a straight face that they have been forever passionate supporters of a fully elected House. The two of them have been here for 100 years put together—full marks for that. If they were totally committed to a fully elected House and if they have been unable to do anything about it in those 100 years other than to keep repeating those barely credible words which are simply a device to delay and prevent enactment of this Bill, all I can say is that they have not been very effective parliamentarians. Please can we hear the end of that and move on.
The Earl of Caithness
“(3) Section 1 comes into force after the period of two months beginning with the first day on which the conditions in subsections (4) and (5) are met.(4) The condition in this subsection is that a House of Lords Appointment Commission, as set out in Schedule (The House of Lords Appointments Commission), is in operation on a statutory basis, with the role of screening, selecting and recommending all persons for appointment to the House of Lords.(5) The condition in this subsection is that a Speakers’ Committee on the House of Lords Appointments Commission, as set out in Schedule (The Speakers’ Committee on the House of Lords Appointments Commission), is in operation on a statutory basis, with the role of scrutinising the work of a House of Lords Appointments Commission set up in accordance with subsection (4).(6) This section comes into force on the day on which this Act is passed.”
The Earl of Caithness
My Lords, we move to an important amendment which would not delay the implementation of the Bill in any way if it were accepted. It touches on a matter that we have briefly discussed: the appointment of life Peers to the House. When the 1999 Bill was debated in the House of Commons there was considerable discussion about patronage. My noble friend Lord Young of Cookham, then Sir George Young, said that the Bill would see,
“a quango House created by stealth”.—[Official Report, Commons, 10/11/99; col. 1147.]
My noble friend Lord Cormack also criticised the patronage that could happen at that stage and recommended that the hereditary Peers be kept because of the undiluted patronage of the Prime Minister.
Since then, as the noble Earl, Lord Kinnoull, has said, the House of Lords Appointments Commission has come into being, but it is not statutory. Whatever happens to this Bill, immense power and patronage will be in the hands of one person to appoint life Peers.
The purpose of Amendment 58A and the two other amendments that go with it is to establish a statutory appointments commission. I will not go into detail because noble Lords who have studied the 2012 Bill—which, sadly, fell in the House of Commons because of mishandling at that end—had it all in there. My words are taken from the 2012 Bill, of whom one of the proposers was none other than Sir George Young, so my noble friend the Minister will know the words intimately. I hope that because he designed and approved them, he will have no objection to them coming in.
This would be a good amendment for the noble Lord, Lord Grocott, to accept. At the moment his Bill is destroying a part of the House. He has described it as a small Bill, but it is like lighting a match and putting it to a fuse that is going to Semtex because there will be substantial alterations to the British constitution as a result. He could go out with this Bill not only having destroyed something but having put something valuable in its place—a statutory appointments commission.
I will not weary your Lordships by taking you through all the points of detail because they were all made by parliamentary draughtsmen seven years ago. I beg to move.
Lord Foulkes of Cumnock (Lab)
My Lords, if I was still in another place and not here, I would ask the person chairing the Committee how this amendment is allowable. The purpose of the Bill is to:
“Amend the House of Lords Act 1999 so as to abolish the system of by-elections for hereditary peers”.
It does not go beyond that. However, this amendment goes way beyond that.
As I understand it, because of the crazy procedure in this place, the chair has almost no powers, so perhaps I may ask the Minister, who has been referred to on many occasions by the proposer of this amendment, how on earth these amendments are allowable. It is crazy. Is there no answer?
Lord Rennard
My Lords, the noble Lord, Lord Foulkes, is right about the nature of this amendment. There is a simple test to compare an amendment as against a filibuster: this is a one-page Bill in total and yet the amendment runs to nine pages. A nine-page amendment to a one-page Bill is not an amendment to make a small change to improve the legislation but an attempt at a filibuster. A definition of a filibuster is:
“A filibuster is a political procedure where one or more members of parliament or congress debate a proposed piece of legislation so as to delay or entirely prevent a decision being made on the proposal”.
Lord Foulkes of Cumnock
The noble Lord is right about filibuster—I like filibusters on occasions. I could put down an amendment within the terms of the House of Lords Act 1999 so as to abolish the system of by-elections for hereditary peers and I could filibuster on a perfectly proper amendment which changes a word or whatever. That is allowable. However, as I know the noble Lord, Lord Rennard, is a constitutional expert, perhaps he can tell me how these amendments—which are clearly not within the terms of the title of the Bill—are allowable. I must have a word with the Clerk of the Parliaments—I am having a lot of words with him at the moment but I will have another one—to find out why on earth these things are allowed.
Lord Rennard
I ask exactly the same question as the noble Lord, Lord Foulkes, and I agree with the point that he is making. There is a strong case for putting the House of Lords Appointments Commission on a proper statutory basis. That was one of the four proposals in the House of Lords Reform Bill, which became known as the Steel Bill—one of the many sensible proposals—but it was effectively blocked because of a flurry of hundreds of amendments in the name of the noble Lord, Lord Trefgarne, tabled the day before that Bill was to be considered in the House of Lords. That is the reason it did not happen or make progress. Those people who prevented the House of Lords Appointments Commission being put on a statutory basis are now suggesting that we need to debate putting the House of Lords Appointments Commission on a statutory basis. The text is simply to prevent us making a sensible, modest reform to bring an end to the hereditary by-elections. We need to end those by-elections because if we do not make a contribution from the hereditary element towards a reduction in the size of the House, we will increase the proportion of Members of the House who will be here by virtue of the hereditary position, as opposed to at least being appointed by the Appointments Commission or by elected party leaders.
Lord Lisvane (CB)
My Lords, I respectfully support what the noble Lord, Lord Foulkes of Cumnock, said. Of course, one cannot translate issues of scope directly into issues of relevance in this House, as opposed to the House of Commons, but it is worth recalling that this is a single-purpose Bill. At the very least—at the kindliest level of criticism—its inclusion as being in order for an entirely separate one-purpose piece of legislation is generous.
Baroness Jones of Moulsecoomb (GP)
My Lords, I was hoping not to speak in this debate because I wanted to leave early and get a train to Dorset to see my grandchildren, so I am rather irritated to be on my feet. Quite honestly, this is cheating. I know that I am a relatively new Member of the House, particularly compared to the noble Lords opposite, but filibustering on a simple Bill like this which has an enormous amount of support in the House is cheating and I do not know how it is allowed.
A few comments have been made already which are infuriating. I do not remember either noble Lord signing up to my Bill on an all-elected Chamber, but I look forward to getting their signatures when I bring it back. This phrase about the “undiluted patronage of the Prime Minister” is not strictly true. I am here because Cameron honoured a promise in the party’s election manifesto. I am sure that Cameron and Clegg regret it but that is the fact, so there are people who are here not just on a whim. I remind all noble hereditary Lords that they are here on a whim, as the noble Lord, Lord Rennard, pointed out—the whim of a monarch, many centuries ago—and I do not believe that anybody is born that entitled. I admire what a lot of the hereditary Peers do here—I even have a best friend who is a hereditary Peer—but the fact is that it is a ridiculous system to maintain into this century. Quite honestly, this abolition of by-elections is a soft way to go about it. It values the noble Lords we have here at the moment but it says: “Enough”. This is a defunct and outdated system and we will gain respect from outside if we are to make a move of this kind.
Lord Grocott
My Lords, I really am grateful for the contributions we have had. I thought pretty much everything that could be said about this Bill had been said at the various stages so far. This is the third day in Committee, which must be unprecedented for a Private Member’s Bill, or close to it anyway. Still, new thoughts arise, not least—I suppose this is not a new thought but it is a very significant one—from my noble friend Lord Foulkes, whose point was embellished with skill and elegance by the noble Lord, Lord Lisvane, whose clerkly word to describe the allowance of this amendment being tabled to the Bill was “generous”. I shall remember that all-encompassing word, which avoids saying brutally what needs to be said. I was surprised as well that this amendment was in the scope of the Bill. Should the noble Earl, Lord Caithness, and the noble Lord, Lord Trefgarne, decide to bring this back on Report, I hope that they consult the clerkly community, as I am sure they do, and that the clerks will reflect on what has been said today during this debate—particularly by the noble Lord, Lord Rennard—and decide that this should not be here. Many of us are perfectly happy about having a statutory Appointments Commission. I am happy about all things in life but I do not want them all tacked on to this Bill. That is all I am saying.
I appreciate the point made by the noble Baroness, Lady Jones of Moulsecoomb. We have had very few votes, but support for this Bill in this House is overwhelming in all parties and in none, as well as among both life Peers and hereditary Peers. I have no doubt about that. I notice that one of the amendments asks that the Bill should not become operational until a majority of the hereditaries agree to it. This is only anecdotal, but a number of hereditary Peers have come to me to say, “Why on earth do they not let this Bill pass?” That is my appeal to them now.
We will come back to the Bill on Report. We have had a clear indication from the noble Lord, Lord Balfe, that there is a good chance that the Commons would support it. We would do ourselves no end of good by passing it and we would do ourselves significant damage if we allowed these silly by-elections to continue. Let us try to complete the Committee stage now.
The Earl of Caithness
My Lords, it made me smile when I heard several noble Lords criticise this proposal because I have had heard equally from noble Lords who want to attach their ideas to other legislation going through the House, their argument being, “We don’t get many chances to discuss bits of legislation so let’s tack it on to this Bill”. The noble Lord, Lord Grocott, when he was the Chief Whip, will remember many occasions when amendments were tabled to tack on people’s specific wishes that some would consider not quite in the spirit of the Long Title. However, it was a chance to air a point.
Noble Lords have not criticised the need for a statutory Appointments Commission, although they have said that it would be wrong to have it with this legislation— I remember saying that as a Minister in response to quite a number of amendments.
I have been singled out for trying to delay the Bill. Yes, I have tabled amendments, but until today I think that we have had some six hours of discussion and I reckon that I have spoken for less than a quarter of an hour. I do not think that it is me who is holding up the Bill or discussion on it. I may have put down amendments, but everyone else seems to want to chime in.
I regret that the opportunity has not been taken to put this proposal into the Bill because I do not think that it would cause much of a problem. If everyone wants it, this is a perfect vehicle for taking it forward for the benefit of the future of this House. Meanwhile, I beg leave to withdraw the amendment.
Lord Trefgarne
I will not delay your Lordships for more than a moment. The proposal of my noble friend Lord Caithness to regularise selections as proposed in his amendment is a very good one and I support it.
Lord Grocott
As we come to our conclusion, I shall say simply this. I am very grateful to so many people for proving the success of Private Members’ Bills being held in Grand Committee. It should facilitate the opportunity for more Members to make use of the House’s time on a Friday while Second Readings are being taken in the main Chamber. I thank all noble Lords who have taken part in our debate. I can barely believe that we have completed the Committee stage, but it looks as though we have.
House of Lords (Hereditary Peers) (Abolition of By-Elections) Bill [HL]
Friday 15th March 2019
(5 years, 9 months ago)
Lords ChamberRead Full debate House of Lords (Hereditary Peers) (Abolition of By-Elections) Bill [HL] 2017-19 Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: HL Bill 144-I(a) Amendment for Report, supplementary to the marshalled list (PDF) - (14 Mar 2019)
11:39 - Division on Lord Cormack’s Motion - Ayes: 87 / Noes: 23 - Lord Cormack’s Motion agreed.
11:51 - Division on Amendment 2A - Ayes: 21 / Noes: 85 - Amendment 2A disagreed.
12:55 - Division on Amendment 12 - Ayes: 15 / Noes: 48 - Amendment 12 disagreed.
The Lord Speaker (Lord Fowler)
The procedure is that we take this first. The question is “That this Report be now received”. As many as are of that opinion will say “Content”, to the contrary “Not-Content”. The Contents have it.
Lord Trefgarne
My Lords, I apologise for confusing the procedure. I simply wanted to say a few words before we get to the Marshalled List. The plain fact is that the noble Lord, Lord Grocott, and I, who disagree over the Bill’s provisions, as is well understood, none the less agree on a number of important issues relating to this matter.
The noble Lord has on several occasions drawn attention to the very small number of Peers who vote or take part in hereditary Peer by-elections for the Liberal Democrats and the Labour Party, and I do not disagree with that curiosity. I therefore would not oppose the idea that all hereditary Peer by-elections be conducted on an all-House basis, as are those by-elections for officeholders at present. He has also drawn attention to the small number of female Peers—
Lord Hunt of Kings Heath (Lab)
My Lords, I wonder whether the Minister might help the House understand what is actually taking place.
Lord Young of Cookham (Con)
Well, let me have a go. I think my noble friend Lord Trefgarne was hoping to intervene on the Motion moved by the noble Lord, Lord Grocott, that Report be now received. However, the question was put, the House agreed and my understanding is that we should now move to the first amendment. It may be that some latitude could be extended on the first amendment for my noble friend to make the point that he was in the process of making.
Clause 1: Overview
Amendment 1
Lord Cormack
Lord Cormack (Con)
My Lords, before I speak to my amendment, I say—on behalf of everyone in the House, I am sure—how glad I am that there will be an opportunity for a minute’s silence at 11 am in the wake of the thoroughly barbaric and appalling outrage in New Zealand.
I also very much hope that we will be able to conclude proceedings on this Bill in good time to enable the Bill brought forward by the noble Lord, Lord Marks of Henley-on-Thames, which potentially affects hundreds of thousands of people in this country, to have a decent Second Reading.
My amendment is essentially a tidying-up amendment and a simple one, and I have discussed it with the noble Lord, Lord Grocott, who has kindly indicated to me that he is minded to accept it. There are 92 hereditary Peers in your Lordships’ House, but only 90 of them are subject to the by-election provision. I strongly support the Bill—the noble Lord knows that: I have spoken in its favour and may have to do so again—but there are two hereditary Peers who are not subject to by-elections, who are here by virtue of the fact that they hold important offices of state. Neither of them ever participates politically in the proceedings of your Lordships’ House, but the Lord Great Chamberlain has the duty from time to time to deliver messages to your Lordships’ House. Therefore, his membership is important although peripheral. The Earl Marshal has the very real burden of being in charge of notable affairs of state. Again, it is appropriate that he should be a Member of your Lordships’ House, and the measure adopted some 20 years ago accepted that.
All I suggest in the amendment is that we make it abundantly clear that the Bill is dealing with what it says it is dealing with—by-elections—and that those two posts are not relevant to the Bill and therefore should not form part of it. I beg to move.
The Lord Speaker
I can see it is going to be one of those days. Amendment proposed: page 1, line 4, at end insert the words as printed on the Marshalled List. I call Amendment 2, as an amendment to Amendment 1. Lord Northbrook.
Amendment 2 (to Amendment 1)
Lord Northbrook
Lord Northbrook (Con)
My Lords, I firmly support my noble friend Lord Cormack’s amendment but it needs a little tweaking. In moving Amendment 2 I will speak also to Amendments 16 and 31. I am amending my noble friend’s amendment because I believe, contrary to the Bill, that the current royal officeholders—the Earl Marshal and the Lord Great Chamberlain—and their successors should remain Members of the House of Lords.
The Earl Marshal is the eighth of the great offices of state. The Duke of Norfolk’s family has held that position since 1672, being responsible, as my noble friend Lord Cormack said, for organising major ceremonial occasions, the monarch’s coronation and state funerals. He also oversees the College of Arms. The Lord Great Chamberlain is the sixth of the great offices of state, having charge of the Palace of Westminster. The office goes back to William the Conqueror’s reign. It is quite right that these two royal officeholders should remain Members of the House of Lords due to the importance of their roles and duties. Amendment 16 would adjust the Bill’s wording to put that into effect.
Amendment 31 covers a slightly different situation. At the end of last year, I was pleased to see the noble Lord, Lord Carrington, elected as one of the 90 hereditary Peers through a by-election. However, when Her Majesty dies, the noble Lord will become the Lord Great Chamberlain, as the position rotates between different peerage families on the death of the sovereign. As a result, there will be a vacancy among the 90 excepted hereditary Peers. This situation is not covered by the new subsection (4) proposed by Clause 1(3), which refers only to,
“the death, retirement, resignation or expulsion of an excepted person”.
Hence I believe that in these circumstances, a by-election should be held. I beg to move.
Lord Grocott
My Lords, I fear that we may already be losing the dozen people I understand to be following this discussion in the country at large. I will try to expedite things. The retention of these two positions is completely anachronistic. Two hereditary positions remaining in perpetuity when they do not take part in events here is odd, particularly when we are trying to reduce the size of the House to 600. However, it is not germane to the Bill’s central purpose, which is to end by-elections, as the noble Lord, Lord Cormack, said. On those terms, I accept the amendment and hope that we can get on to Amendment 2A.
Lord Strathclyde
Lord Strathclyde (Con)
My Lords, Amendment 2A is not on the Marshalled List. I apologise; it was tabled rather late yesterday and I did not have an opportunity to discuss it with the noble Lord, Lord Grocott. I had a eureka moment in my bath yesterday morning, when I was thinking about the noble Lord and his Bill, and came to the conclusion that it was an appropriate way to deal with this legislation and solve a very serious lacuna at the heart of the Bill.
Before I go on, I join my noble friend Lord Cormack in saying how right it is that this House should stop at 11 am for one minute to mark the terrible attacks in New Zealand. I hope that my noble friend Lord Young will direct us at a suitable time so that we can honour that moment with appropriate dignity.
Given the sort of parliamentary chaos that has been going on over the past couple of weeks in another place, it is wonderfully reassuring for people to come to this House and find that we can have a straightforward debate—one we have held many times in the past 20 years—discussing in detail how to progress with reforming your Lordships’ House.
As the House knows, I have been involved in many such debates, as has the noble Lord, Lord Grocott, but this is the first time I have spoken on this Bill during this Session. I have no idea how long this Session will last, but even if it lasts just another couple of months, I hope the noble Lord will agree that it is extremely unlikely that this legislation will get into law. I do not know whether we will finish Report today or when the Bill will receive its Third Reading. However, to be clear, I oppose the legislation because it would create a wholly appointed House. As the House knows, I am broadly in favour of politicians in the United Kingdom being elected, not appointed, but I know that that is not a popular view in this House.
Lord Forsyth of Drumlean (Con)
If my noble friend is so certain that the Bill will not make it on to the statute book, why on earth is he moving this amendment?
Lord Strathclyde
I was just about to come to that. My amendment is small and humble but it deals with an important issue. As it is unlikely to become law, we now have time to study it in some detail—if the principle behind it is accepted today, as I hope it will be—before Third Reading, when we can add detail to it. I am grateful to my noble friend for allowing me to clarify that.
What is the most difficult part of this Bill? It is the third and fourth lines of Clause 1, which say,
“thereby making the House of Lords a wholly appointed Second Chamber”.
This is the central part of the legislation, to which I would like to add the words,
“and create a statutory House of Lords Appointments Commission”.
I have nothing but the greatest respect for the noble Lord, Lord Grocott, and for his integrity and tenacity in coming back time after time with this legislation. However, it is a profoundly political Bill. In Committee, my noble friend Lord True explained why that was. By doing this, we will remove the ability of 40-plus Conservative Members of this House to replace themselves without a guarantee that they would be replaced in any other shape. I wholly understand why the noble Lord thinks that is a desirable outcome, and I hope he will understand why I think it is an undesirable outcome. He certainly does not duck the issue. The noble Lord is completely up front about his objective.
The lacuna at the heart of the Bill is that it removes the ability to have hereditary by-elections but does absolutely nothing to improve the way others are appointed to this House. I want to put that right. I hope that the noble Lord, Lord Grocott, will agree with me that it is something we need to tackle, and why not tackle it in this Bill? It has been promised for more than 20 years by the party that the noble Lord, Lord Grocott, supported so ably in government. It appeared in several White Papers in the early part of the century. Now is the opportunity to debate it further and, I hope, to put it in this Bill. I have said that it is a humble amendment but it deals with a big issue, and I hope very much that the House will accept at least the principle behind it.
Lord Anderson of Swansea (Lab)
My Lords, has the noble Lord been advised that his amendment is within the purposes of the Bill?
Lord Strathclyde
My Lords, I went to the Public Bill Office to put the amendment down, and it took the clerk about 10 seconds to agree that it was entirely in order. It might also be worth flagging up that my noble friend Lord Caithness, after Clause 3, has a very substantial amendment, Amendment 59, which seeks to amend the Bill to include a fully thought through appointments commission. I think it is in order but if the noble Lord feels that it is out of order in any way, I will certainly listen to his argument.
Lord Hunt of Kings Heath (Lab)
I am grateful to the noble Lord. I have to say that the loss of 40 Conservative hereditary Peers may not be greeted with great sorrow all around the House. Can he tell me how many years he would expect it to take to lose the total of 40? I suspect it would be many years.
Lord Strathclyde
My Lords, I am not an actuary but I am sure there are actuarial tables that the noble Lord, Lord Burns, will have looked at in the course of his report. But what the noble Lord’s question really begs is that he does not believe that there will ever be any long-term reform of this House. I have not given up hope. One of the few things that the noble Lord, Lord Adonis, and I agree on is that that is a very desirable way to go forward. I accept that it is unlikely to happen in this Session of Parliament, or indeed in the next, but that does not mean that we should give up on that ability. My fear is that once we have a wholly nominated House, that will be it for another 100 years, and I am not in favour of that.
As the House knows, in 1999 we had a two-stage reform.
Lord Redesdale (LD)
My Lords, I do not want to intervene for long, but I am in rather a strange position. As a life Peer, having stood down as a hereditary Peer and been elected to this House, I have the issue that my son could stand on the hereditary Peer list. Obviously I have had to explain to him that I will have to be dead first—that is the way of it. But I question the noble Lord’s premise. In 1999, the number of Conservative Peers was set just because that happened to be the percentage of the number of Peers there were at the time. That of course led to the Liberal Democrats having only three. If the same situation arose today and was based on the number of Peers, we would have a larger proportion. Is he saying that, as a matter of luck, the Tory party ended up with a large number of hereditary Peers who will carry on for ever and that should be the basis going forward, or is he suggesting that perhaps we should rejig the number of hereditary Peers available to other parties?
Lord Strathclyde
My Lords, I wholly accept that everyone thought that the hereditary Peer by-elections would never actually occur because they would kick in, if I may use that term, during only one Session after the subsequent general election that took place in 2001. The noble and learned Lord, Lord Irvine of Lairg, looked me in the eye when he made this agreement and said, “These things will never happen because we intend to come forward with proper reform early in the next Parliament”. I accepted that.
I say to the noble Lord, Lord Redesdale, that it is always entertaining to hear a Liberal Democrat talking about the disparity of numbers in this House: need I say more? Whether it was luck or a matter of fact, those figures for the hereditary Peers were set at the time and no one thought that they would continue. But they are set now and my point to the noble Lord, Lord Grocott, is that if you take away the hereditaries’ ability to remove themselves and put nothing else in place, that could create a long-term unfairness, which I will deal with in a moment.
Post 1999 we were promised a second-stage reform, but we are not there yet. The by-elections are a central reminder of that failure. As well as being a nod to the past, I think the new hereditary Peers are perfectly capable people and I know that the noble Lord, Lord Grocott, has been at pains to say that there is no personal attack on hereditary Peers or their heirs; these are much more principled objections. But if we are stuck with this halfway house, we must deal with some of these issues. For the noble Lord that means the by-elections, while for me it means an appointments commission set up on a statutory basis.
Lord Adonis (Lab)
I hope the noble Lord will forgive me. Would his statutory commission apply just to Cross-Bench Peers, as now, or does he see it applying to party Peers too? He will know that there was a big debate when the commission was set up on a non-statutory basis about whether it would apply party Peers. Indeed, there was a radical idea that the commission itself, rather than the party leaders, should nominate the party Peers. Has the noble Lord given any thought to this idea, because the scope of his commission is an important question?
Lord Strathclyde
My Lords, the noble Lord and I stand shoulder to shoulder in our radicalism. I would want a statutory appointments commission to do exactly that: to appoint all Peers to this House apart from the Lords spiritual, who of course get here in an entirely different way. At the moment the Bishops have their own route in and the hereditary Peers have their by-elections. The HOLAC nominations come in, but the overwhelming majority of new life Peers who come to this House arrive through the political route, advised and guided by the Prime Minister, who no doubt takes soundings and recommendations from other party leaders. This is the reason for the change. The noble Lord, Lord Adonis, is asking his question at exactly the right time because it is the time for radicalism on this.
I shall make some further points. First, nothing I say is a criticism of the current system championed by HOLAC. It does an excellent job and is led by the noble Lord, Lord Kakkar. However, HOLAC is not statutorily based. The commission can be abolished or its remit can be changed at any stage. Since I feel that in recent years our constitutional arrangements have become more fluid, in a sort of make-it-up-as-you-go-along mood, there is a real danger over the next few years, if we accept the case for a wholly appointed House, that a Prime Minister could well use those ancient constitutional powers to increase the House of Lords on a party basis. Remember, this has been threatened in the past. If we are to create a wholly appointed or wholly nominated House, we need new protection.
My humble aim today is to get the principle of this agreed—I cannot imagine that anybody would want to oppose it, but in this House you never know—and then to join others, including my noble friends and perhaps the noble Lords, Lord Grocott and Lord Adonis, to look at what has been written about this in the past and to come up with an amendment at Third Reading that might appeal to noble Lords across the House and to the Government. To those who might say that it would be inappropriate to table such an amendment at Third Reading, I say that obviously I would not do it if it were not clearly in the rules. We might even be able to recommit that new clause at Third Reading. I hope the House would regard that not as a constitutional innovation—it is not—but as an opportunity to debate in detail what I would propose.
Lord Grocott
My Lords, someone from this side should perhaps say a few words at this stage. I wholly associate myself—I am sure everyone in the House does—with the remarks made about the events resulting in our minute’s silence at 11 am. I fear that that might be the end of the consensual feeling I am able to express today.
The noble Lord, Lord Strathclyde, began his remarks by saying that he thought the Bill was unlikely to become law, and then spent 16 minutes making it less likely to become law. He knows perfectly well what he is doing; he has been here for 34 years, so I imagine that he is getting the hang of it by now. Mind you, he is a newcomer compared with our friends the noble Earl, Lord Caithness, who has been here for 49 years, and the noble Lord, Lord Trefgarne, who has been here for 56 years. So they have had 140 years between them, and that is a pretty good innings. Maybe they can listen to some more recent voices.
I simply say this to the noble Lord: it is a pity he was not able to join us in Committee to familiarise himself with what has happened to the Bill so far. It was introduced 18 months ago in September 2017, when I was lucky enough to draw number one in the ballot for Private Members’ Bills, which should give one a reasonable hope of the Bill passing through its stages in the Lords. It had its Second Reading then; it has since had three days in Committee, which the noble Lord, Lord Strathclyde, was unable to get along to.
Had the noble Lord made it to the third day in Committee, he would now be aware that the precise amendment he is proposing now was debated at length and overwhelmingly opposed by those who spoke, including no less an authority on procedure—admittedly, not in this House—than the noble Lord, Lord Lisvane, who pointed out, quite correctly, that this is a single-issue Bill that I am proposing. It is a three-clause Bill on one page. The noble Lord, Lord Lisvane, said, in terms, that to introduce this kind of additional related material into a single-issue Bill of this sort was a rather “generous” way of interpreting our procedures. The noble Lord, Lord Strathclyde, knows perfectly well that, if this amendment were accepted or debated in any detail now, it would add enormously to the time involved in establishing this Bill, it would add to the costs of the Bill and, most importantly of all, it would do what I am sure his amendment is intended to do and make it even less likely that this Bill will become law.
I am so conscious on these occasions that we have these ragged debates—we have had several on this—that are unintelligible to the public outside. The noble Lord, Lord Strathclyde, suggested that he was a moderniser; well, not in this respect. It needs someone—and it falls to me—to remind the House why we are doing this and why I am introducing the Bill. It is simply to end these idiotic by-elections, which are occurring with increasing frequency, in which only hereditary Peers on the hereditary Peers list, of which there are 211—I remind the House that 210 of them are men—can take part. In the first 10 years of the 20 years for which this system has been in operation, there were 10 by-elections. In the second 10 years, to date there have been 26. There is one pending, which bears a moment’s thought. It is due to be announced on 27 March. There are 28 electors who will elect this new Member of Parliament on 27 March, and 14 candidates; that is two electors per candidate. The cost of the by-election will be £600. Noble Lords might think that is not much, but I think—my maths is not very good—that is roughly £8 per vote. I would do it for less, should the offer be made to me. Needless to say, it is an all-male shortlist, which is quite unusual these days and takes some defending—which the noble Lord, Lord Strathclyde, is presumably capable of doing.
Most of what I want to emphasise today is what is happening in this House. In the last 10 days, 63 amendments have been put down to this simple, three-clause Bill, 53 of them by the same two Members—our old friends the noble Lord, Lord Trefgarne, and the noble Earl, Lord Caithness. They have degrouped all the amendments—I will not go into the details of degrouping, because I really would lose an audience if I were to try to do so—but it simply means that today we are discussing 42 groups of amendments. Most Chief Whips will say that if you are very lucky you can get through six groups in an hour—we are certainly not doing that now—so I reckon it would take seven hours of debate to get through those 42 groups. Of course, every one of them needs opposing, because most of them are ridiculous.
I will give two examples; I will spare my noble friend Lord Adonis on this side—I think he would win the prize for the silliest amendment. Actually, I cannot resist; I will mention it in a moment. But there are two that I will mention now. Amendment 47 says that in order for the Act to be implemented there would need to be an approving ballot among not just hereditary Peers here, but all hereditary Peers. There are about 900. I have not counted them, but I am sure the noble Lord, Lord Strathclyde, knows how many there are. I have no doubt that many of them are living abroad and are in various stages of excitement about the arguments that they can deploy—that is as politely as I can put it. The idea that you can organise a ballot of 900 people worldwide in order to sort this out is just ridiculous.
The amendment that takes second prize is Amendment 54, which says that the Act will be implemented when the number of women hereditary Peers equals the number of women hereditary Peers who were Members of the House of Lords at the time of the 1999 Act—you know it makes sense. There were four women hereditary Peers at the time of the 1999 Act. The progressive series of elections has resulted in the fact that there is now one—so the number has gone down from four to one—and the Act would come into effect until that number got back up to four. Please spare us that amendment. I ask that all the amendments be withdrawn or not moved, but let us concentrate to begin with on the most idiotic amendments. The idea that in the 21st century we should be arguing about whether we should have one woman or four women among the 92 reserved places is beyond satire.
However, I have to give first prize to my noble friend Lord Adonis. He says—
Lord Cormack
I support everything that the noble Lord, my friend, has said, but would it not look ridiculous in the country if this debate prevented a proper discussion of the Cohabitation Rights Bill, which is due for a Second Reading and in which many people throughout the country are taking a real interest?
Lord Grocott
That is absolutely right. This Report stage is scheduled to finish at 1.30 pm. That is ample time to deal with any reasonable amendments that anyone might wish to put down. It is generous time—but I am losing track of my desire to get to my noble friend Lord Adonis’s amendment. It would provide that, when the next by-election takes place, which we know will be on 27 March, when there are 28 electors, as I pointed out, the vacancy would be filled by a vote of the whole of the electorate of the United Kingdom. I will say that again because I do not think it has quite sunk in; the electorate would be the whole electorate of the United Kingdom. I cannot tot that up off the top of my head, but the electorate is about 40 million, so I suggest gently to my noble friend, who is known for his hyperbole, that to substitute 40 million electors for 28 electors to elect a hereditary Peer is overdoing it, so I hope my noble friend will have enough sense not to press that amendment.
This is all serious as far as I am concerned, but there is a real test here, particularly for the noble Lord, Lord Trefgarne, and the noble Earl, Lord Caithness. It is this: they can decide to expedite these amendments, and move them if they must, to conclude this Report stage by 1.30 pm. The House would then be orderly, it would have given the Bill more than enough time—more than anyone could reasonably expect a Bill of this length to have given to it—or they will be in grave danger of bringing the whole proceedings of this House into serious disrepute if they do not withdraw the vast majority of the amendments.
Lord Hain (Lab)
Before my noble friend sits down, perhaps I may ask his advice on one point. Surely the Government should end this whole pursuit and provide time for the Bill to conclude during this Session and to be introduced in the Commons and then carried over into the next Session so that we can really make some progress and end this ridiculous farce that is bringing this House into terrible disrepute.
Lord Grocott
I sincerely wish it were possible to carry this Bill over into the next Session, because there is no doubt whatever that it has overwhelming support in this House in all parties and, I guess, even among the hereditary Peers—but it is not within the power of the House to do that. The Companion to the Standing Orders is quite clear. I reassure my noble friend that if I should be unfortunate enough, despite having been first in the ballot, not to get my Bill on to the statute book this year, despite the wonderful support that it has had, I shall bring in exactly the same Bill in the next Session of Parliament. I know it will succeed some time. It is just a matter of persistence, and I can be extremely persistent if required.
The Earl of Caithness (Con)
My Lords, it might be for the benefit of the House if I speak to my Amendments 58, 59 and 60, which my noble friend Lord Strathclyde mentioned in his speech. I am glad I am now following the noble Lord, Lord Grocott. I do not have my name down to 53 amendments, as he claimed. That was a very misleading statement. He also derided the amendment relating to female hereditary Peers. There is a slightly deeper reason for that. My name is not to that amendment, but I think my noble friend Lord Trefgarne, who will doubtless speak for himself on this matter, has introduced a Bill to change the rules regarding succession to hereditary peerages. I believe that it should be the eldest child. If the eldest child of the monarch should succeed, so should the eldest child of a Peer succeed. I would support any Bill in that direction.
Lord Campbell-Savours (Lab)
There will be people outside watching this debate. Will Members declare an interest at the beginning of their contribution if they are hereditary Peers so that people understand exactly where people are coming from in this debate?
The Earl of Caithness
My Lords, that is not a declarable interest, but I think all those who are interested enough to listen to this debate will know that I am a hereditary Peer, and it does not take much looking up on Google to decipher whether a Peer is a hereditary.
The noble Lord, Lord Grocott, also said that he did not want me to speak. It was not until, I think, the 42nd minute that I was allowed to get to my feet, so I have not been delaying the Bill.
The noble Lord also mentioned patronage, which is of great interest to my noble friend Lord Cormack. I am sorry that he has changed sides. He will recall that, on 10 November 1999, in the other place he said:
“I believe without equivocation … that the House of Lords will be better for the 92”.
He raised another point a little earlier in his speech:
“We are witnessing a crude exercise of patronage”.—[Official Report, Commons, 10/11/1999; col. 1200.]
That was the patronage of the then Prime Minister Mr Blair, and I wonder what my noble friend thought of the patronage of Mr David Cameron in his Dissolution list when he ceased to be Prime Minister. That is why my noble friend Lord Strathclyde had one of his many eureka moments—this time it was in the bath yesterday morning, but he has had a number of them—and it is also why I tabled Amendment 58, which requires the setting up of a statutory appointments commission. I go into more detail than my noble friend Lord Strathclyde—I set out exactly what I want.
Lord Forsyth of Drumlean
Does my noble friend not see the irony of a hereditary Peer arguing against patronage, given that all hereditary Peers are here as a result of patronage given some generations ago? As to the image of my noble friend Lord Strathclyde in his bath, does he not think that this matter requires rather longer consideration than the time he might have spent in his bath?
The Earl of Caithness
We are giving it consideration. It was that eureka moment in the bath that has prompted this debate. My noble friend Lord Forsyth knows full well my position on hereditary Peers. I do not think that they should be here, and I also think that this ought to be an elected House. However, in 1999 there was a binding-in-honour agreement that the hereditary Peers would stay here until stage 2 of House of Lords reform. The noble Lord, Lord Grocott, never refers to that and I can quite understand why, but to us it was a fundamental part of the agreement. If I am being criticised for standing up for a binding agreement and principle, so be it, and I am very sad that other noble Lords do not take the same principled view on the matter.
Lord Snape (Lab)
Far from it being a noble quest back in 1999, those of us who were in the other place at the time seem to recollect that it was a rather squalid agreement to preserve the neck of the Conservative Party.
The Earl of Caithness
My Lords, that is the noble Lord’s interpretation of the agreement. I was not party to it, but it was introduced by the then Lord Chancellor, the noble and learned Lord, Lord Irvine of Lairg, and it was binding in Privy Council terms on all of us who took part in that debate. That was a binding commitment. I have tabled an amendment that we shall come to later to try to help the noble Lord, Lord Grocott, get to the same position that I want to get to, which is to get rid of the hereditary Peers in this House.
Perhaps I may return to my amendments. I set out in quite considerable detail how the House of Lords statutory appointments commission should work. It will come as no surprise to my noble friend Lord Young on the Front Bench because he will recognise the details. They come from Schedules 5 and 6 to the 2012 Bill, which, sadly, failed in another place. I would have supported it had it come to this House. His name was on that Bill, as indeed was Danny Alexander’s, so I presume that the Liberal party still supports a statutory appointments commission, and I look forward to getting the support of its Members for this.
I do something slightly different from my noble friend. I set out that there should be a House of Lords appointments commission, and, equally and importantly, that there should be a Speakers’ committee comprising 13 members, as designed in 2012, to oversee the statutory appointments commission. It was drafted by a government draftsman, so I will not go into any detail, but I hope that the House will give this consideration. As my noble friend Lord Strathclyde said, there would be a lacuna. When the hereditary Peers go, it would be a much better arrangement if there were a totally independent committee to look at all appointments. My amendment covers all that. Proposed new subsection (4) in Amendment 58 says that it should come into operation,
“on a statutory basis, with the role of screening, selecting and recommending all persons for appointment to the House of Lords”.
Lord Tyler (LD)
Does the noble Earl recall that he advanced this argument at length in Committee on 23 November 2018? Does he also recall that the Companion says at paragraph 8.138:
“Arguments fully deployed either in Committee of the whole House or in Grand Committee should not be repeated at length on report”?
What does he have to say to that?
The Earl of Caithness
My Lords, I raised this amendment in Committee and, as with many amendments tabled in Committee, I have brought it forward again on Report. Where I disagree with the noble Lord is in him saying that I raised it at length; it was a very short speech.
The Earl of Caithness
Yes, I read it too, and I remember saying it, so it is no good pointing and waving papers at me. My noble friend Lord Strathclyde has raised other points that were not mentioned in Committee and are worthy of debate and, on that basis, I support his amendment.
Lord Trefgarne
My Lords, I will speak for only a few moments. I support the amendment and very much hope that it will become part of this Bill if it reaches the statute book, which, naturally, I hope it will not. Just a few moments ago, the noble Lord, Lord Grocott, appeared to deploy what I believe he considers to be—
Lord Campbell-Savours
Will the noble Lord declare an interest so that those outside understand where he is coming from?
Lord Trefgarne
If it will satisfy the noble Lord, I am happy to declare that I am a hereditary Peer.
A few moments ago, the noble Lord, Lord Grocott, described what he sees as the principal shortcomings of the by-elections—namely, that there are very few voters and candidates for the Labour Party and the Liberal Democrats as compared with the Conservatives. I hope he therefore agrees that, if the Bill does not become law, voting in by-elections should be done on an all-House basis, which I shall very much support.
Lord Grocott
Can we dispose of this matter? One would think that lots of people would vote in a whole House election. I never take part in these things, but I am very happy to report that at the last whole House election earlier this year, 33% of this House took part in the ballot. I think that that is a sign of people voting with their feet—they know how silly the whole thing is. The percentage taking part has steadily declined since the 1999 Act.
Lord Trefgarne
No doubt, if there is another all-House by-election, the noble Lord will persuade them otherwise, particularly those in his own party. I will not detain your Lordships any longer unless any other noble Lord wishes to intervene. I simply repeat that I support the amendment proposed by my noble friend.
Lord Elton (Con)
My Lords, I wish to intervene very briefly to declare an interest as another hereditary Peer and to say that I have a close interest in what is happening here.
I want the House to be reformed. Reform is available in the form of the Burns report. Everybody has said that all we are looking for is stage 2 of reform. From my point of view, that is stage 2, and if that report were the basis for the second stage of reform, I would not resist this Bill. However, if it comes to a vote, I will vote against it because we have not got to stage 2. That reform was promised to me and 800 other Peers, and they gave up their privileges for no reward on the promise that we would remain here until stage 2 occurred. The most important element of that reform was, whatever form it took, the House would still be free to challenge effectively the national Government when that was required by circumstances. My resistance is temporary, and I wish that we could get on with the issue of reform.
Lord Northbrook
My Lords, I hope that this answers the point raised by the noble Lord, Lord Anderson of Swansea, who is not in his place. I remember well that in the original House of Lords Bill in 1999 we tried to get the amendment of my noble friend Lord Strathclyde added, but it was thrown out by the other place at the last minute. As other noble Lords have said, the non-statutory Appointments Commission, which was established in May 2000, has done a good job in connection with the non-political Peers.
Lord Campbell-Savours
My Lords, again, will the noble Lord declare an interest in this debate to help people outside understand where he is coming from?
Lord Northbrook
I apologise to the noble Lord, Lord Campbell-Savours. I declare an interest as a hereditary Peer.
The House of Commons Political and Constitutional Reform Committee report of October 2013 has an interesting section discussing that.
The Lord Speaker
My Lords, we will now pause for a minute’s silence in memory of those who have lost their lives in Christchurch, New Zealand. Our thoughts and prayers are with their families and friends and indeed with the whole people of New Zealand at this time.
Lord Northbrook
My Lords, Professor Meg Russell of UCL’s Constitution Unit, who is an acknowledged expert on House of Lords matters, said that the non-statutory Appointments Commission,
“has helped to transform the Crossbenches into a more active place where members arrive better prepared, and there is now a clear distinction between independent and party peers. It has also been possible to use these appointments to somewhat improve the gender and ethnic balance in the chamber, and fill clear expertise/professional gaps”.
The noble Lord, Lord Jay of Ewelme, is reported to have told the committee that,
“by focusing on merit, quality and diversity, the Commission had helped to bring much-needed experience to the cross-benches”.
He added that,
“figures for gender diversity, ethnic minorities and disability on the cross-benches are considerably higher than among members of the House … as a whole”.
Some members of the committee, such as Meg Russell, argue that the non-statutory commission should be given more powers. I fear that this would not work. There are problems with its non-statutory basis. The noble Lord, Lord Howarth, in giving evidence said:
“While the existing Appointments Commission acts with scrupulous care and excellent judgement it is not satisfactory, to itself or anyone else, that it has no statutory basis, it invents its own remit and makes up its own rules as it goes along. There should be a statutory Appointments Commission, its task defined in general terms by Parliament and plain for the public to see”.
I agree, and believe that this amendment is important for the future appointments process.
I will make a few more general remarks. As the noble Lord, Lord Grocott, was saying, in 1999 the Lord Chancellor—the noble and learned Lord, Lord Irvine—replied:
“I say quite clearly that … the position of the excepted Peers shall be addressed in phase two reform legislation”.—[Official Report, 22/6/1999; cols. 798-800.]
He also said, in March 1999:
“The amendment reflects a compromise negotiated between Privy Councillors on Privy Council terms and binding in honour on all those who have come to give it their assent”.—[Official Report, 30/3/1999; col. 207.]
As the noble Lord, Lord Grocott, was Tony Blair’s Parliamentary Private Secretary, he must have been well aware of all this. To the hereditary peerage, it was a vital part of the 1999 Act and an additional reason to let it have satisfactory progress through the House.
Lord Snape
I appeal to the noble Lord not to try to rewrite history in the way that he is doing. Does he not recollect that the deal in 1999 to which he refers was done in such an underhand way that it led to the resignation of the Conservative leader of the Peers in this House? There was nothing particularly noble about it; rather the reverse.
Lord Northbrook
With respect to the noble Lord, I was not part of that deal so I cannot go into the detail of it. With reference to the Burns report, I have just seen that the Government do not accept the committee’s recommendation that the Prime Minister must now commit to a specific cap on numbers, absolutely limiting appointments in line with the formula proposed. Thus an important element of the Burns report is deemed to be invalid and the major reform which was promised for phase 2 is incomplete.
Baroness Hayter of Kentish Town (Lab)
My Lords, it would be helpful if we could intervene from these Benches just once. I have to say that just at the moment I do not feel like a shadow Minister. I feel rather like Alice through the looking glass, as though I had fallen through a door and discovered myself—I will not say at the Mad Hatter’s tea party—somewhere in quite a different century.
On the so-called promise made in 1999, women of my age—or rather six months younger than me—were promised throughout their working lives that they would have a pension at the age of 60; they then discovered, unprepared, and without the money, that it would be 67. This House let that through, so it is quite possible to change what has been promised by an Act of Parliament. It is right to do it by an Act of Parliament rather than any other method, but let us not have any of this, when we consider what has been taken away from women. I am one of the very lucky ones—the last cohort of women who got their pension at 60, which was a long time ago—but a whole swathe of women have lost out.
Along with some colleagues, I met a group of Slovak MPs here in the House earlier this week. As very often when women politicians get together, we fell to discussing female representation in our various Parliaments. I have to say that they were completely mystified as to how this House—with the advantage of appointments and therefore not having to worry about whether the electors always choose equally—had not moved further towards female emancipation. I then pointed out that, with one exception, we had a caucus of 92 men who would always remain here because the system was that, when they left, they would be replaced by another man, and nothing that anyone else could do would alter that. They were a little mystified.
The Earl of Erroll (CB)
I am afraid that I have two sons and two daughters, so the two sons would have to go first with no male heir for the daughters to get here; but there are those possibilities and several others here in that position.
Baroness Hayter of Kentish Town
There were several others but, as we know, the figure has gone down from four to one; that is why I said that, with one exception, they are all men. For most on the list, as we have already heard, we are talking about men; in a House of only 400 or 500 active Members, 91 places will always be held for men. That may not make others ashamed, but it makes me ashamed and I am not even one of the people who are here by virtue of my father, grandfather, great-grandfather, great-uncle or anyone else, noble though those people were in their own right. I did not come here having inherited that right through the attributes of some earlier generation. That is what those who stand in the way of this Bill are trying to retain. They are trying to preserve, with some exceptions, the right of sons of people whose attributes 100 or 200 years ago were notable to have a seat in Parliament.
I do not believe that is the right way for us to choose anyone. I do not believe Picasso’s child should be recognised as a top painter simply because their father was. I do not know whether the noble Baroness, Lady Bull, has children, but surely they should not be considered a top ballerina just because their mother was. Yet we think that legislators should be here by virtue of their fathers, grandfathers or earlier forebears. I am not embarrassed by this, but I am embarrassed for those who are here for that reason now—nothing in this Bill will alter the position of those here at the moment—that they should seek to preserve a system whereby, with some exceptions, the sons of people whose forebears were given a seat here should have it, and that they should try to continue this ludicrous system.
We in the Opposition say: this Bill has our support. What we are seeing is a filibuster to try to undermine, talk out and stop the Bill, which will alter something fundamental to our constitution. That is not good enough. It belittles this House, and I think it belittles the hereditaries who are here to vote for the continuation of this system.
Lord Young of Cookham
My Lords, perhaps I could intervene briefly at this stage to restate the Government’s position on the Bill. I begin by commending the noble Lord, Lord Grocott, on steering his Bill through the obstacle course in Committee and reaching Report, where there are still a number of hurdles in front of him. I say to the noble Lord, Lord Campbell-Savours, that I am a life Peer but a hereditary Baronet. I hope that does not confuse his rather binary approach to these issues.
It is clear that many noble Lords wish to see the end of the by-elections, but, despite the oratory of the noble Lord, Lord Grocott, he has not achieved total unanimity. A number of my noble friends, and in earlier exchanges some Cross-Benchers, believe that hereditary Peers should remain, in line with the commitment given at the time, until we have comprehensive reform. I pay tribute to the role that the hereditaries play in our proceedings, as they have a higher participation rate than us lifers.
As the Bill has proceeded through your Lordships’ House, the Government have not obstructed it, nor will we. On the contrary, my noble friend the Chief Whip has been exceptionally generous in the amount of time he has allocated to this Private Member’s Bill, in a field where there are many contenders. While we have some reservations about the Bill, our position is actually academic, as the chances of it reaching the statute book in this Session are, frankly, small, however many meaningful votes are held. The Government’s view is that our energies would be better spent in taking forward the recommendations of the Burns report, as mentioned by my noble friend Lord Elton, which I believe is a more effective way of getting our numbers down than abolishing the by-elections. The Prime Minister has assisted in this process by showing commendable restraint in her nominations to your Lordships’ House, which has caused a lot of distress among former Members of Parliament.
On this particular amendment, noble Lords will know that the House of Lords Appointment Commission was established in 2000 to make nominations for membership of your Lordships’ House to the Cross Benches. It is also responsible for vetting the propriety of all nominations to this House, including candidates for party-political membership. We believe that it does an excellent job and have no plans to make it statutory. As was said earlier, I do not think that amendment sits easily with the main purpose of the Bill. Having set out the Government’s position, I do not plan to intervene again, unless provoked beyond endurance.
The Earl of Erroll
My Lords, to avoid an unnecessary intervention by a politically appointed Peer, I am a hereditary Peer who believes firmly in a democratically elected Parliament in both Houses. I have absolutely no financial interest to declare as to whether the by-elections continue or not. There is no financial interest at all.
It is basically a failure of the democratic principle for the head of the Executive branch of the Government—in other words, the Prime Minister—to be able to influence the appointment of people to a part of the legislature that passes the laws that should be controlling him or her. That is the basic problem. The proposal of an appointments commission, when combined with Amendments 58, 59 and so on, goes some way to correcting that dangerous anomaly in our form of democratic government. It must be totally independent of the Executive, especially as many Members of the other place are Ministers—even more nowadays—and if they reduce the numbers there then the proportion will be even worse. It can be extremely difficult for them to know which hat they are wearing when they are passing legislation that will affect them. Are they legislators or members of the Executive? That concerns me.
I have always said that this House should be principally elected by the public. Many Members of another place agree with that principle; back in 1998, they held several votes on the subject and could not reach a decision on the question of appointed versus democratically elected. The real challenge is that the democrats want both Houses of Parliament to be elected but the Commons supremacists want this House to be appointed, because then they can take away its power as they are the ones with democratic authority, and this House will eventually lose its power over the years. The Prime Minister loses their power to reward people under both proposals, which is part of the problem.
Interestingly, the increase in the number of elections taking place now indicates that, were the Bill to pass, the hereditary Peers would die back to very few over a much shorter period than people seem to think. That would remove all incentive for what we were promised in 1999, which was further democratic reform of this House. All noble Lords who believe in the democratic principle should remember that, and therefore vote for something that does it. That is why the amendment is vital: it would give us an independent appointments commission that was totally outside any influence by the Executive of the Government.
Lord Rennard (LD)
My Lords, I shall be brief, as I believe all other noble Lords should be at this stage of consideration of the Bill. It is the fifth day in this Session of consideration of the Bill, and anyone looking at it will be quite amazed that this talented group of people has spent five days considering a one-page Bill consisting of just 231 words, which takes less than two minutes to read. It is of course a Bill that has the overwhelming support of Members of this House, which has been tested a number of times in its earlier stages. Overwhelming support has been demonstrated by this House for the principle of the Bill of the noble Lord, Lord Grocott.
The Bill is also entirely consistent with, and complementary to, the proposals of the Burns report. Indeed, without this Bill making further progress and being enacted, the report might undermine the principles of this House because it would see a reduction in Members and a consequent increase in the proportion of hereditary Members, unless we do something to halt these ridiculous by-elections.
Over three days in Committee we looked at nine pages of amendments to this one-page Bill. A week ago, 11 pages of amendments were tabled, and now, thanks largely to the efforts of a very small number of hereditary Peers, we are looking at 23 pages of amendments to a one-page Bill. Amendment 59 on its own is a seven-page amendment to a one-page Bill. Therefore, to avoid repetition, I suggest that in each grouping we consider the dictionary definition of the word “amendment”:
“A minor change or addition designed to improve a text, piece of legislation, etc”.
Most of the amendments on the Marshalled List are not anywhere near what might be described as being either minor or intended to improve the legislation. They are intended to wreck it, filibuster and prevent it making progress. They are certainly not minor and they do not improve the text.
I think it brings the House into disrepute that, once again, a small number of Members are preventing the overwhelming majority of the House allowing the Bill to be expedited and preventing the important next Bill, on cohabitation rights, being considered properly. The purpose behind most of the amendments is clearly to delay discussion, filibuster the debate and prevent progress on this issue. I believe we should complete Report today and, as soon as possible, allow the House of Commons to democratically consider the Bill. We are debating issues that are barely relevant to many of the amendments simply to prevent Members of the House of Commons being able to consider the Bill.
We should no longer waste time. We should seek to conclude this stage today and take the next steps to allow the House of Commons to consider this very important and worthy Bill.
The Earl of Caithness
Before the noble Lord sits down, will he say anything about the amendment that we are discussing? The question is: does he support, as his party did in coalition, a statutory appointments commission?
Lord Rennard
The noble Earl is well aware of our position in support of having a properly constituted appointments commission on a statutory basis, but that is not the purpose of the Bill. The purpose of the amendment seeking to put forward that idea, which we have long supported, is simply to prevent proper consideration of the abolition of hereditary Peers’ by-elections, which continue to bring the House into disrepute. Such interventions seeking to delay progress are further bringing the House into disrepute.
The Earl of Erroll
So how on earth does the noble Lord hope to get what he wants to achieve? He will not be able to sponsor a Bill to get it through. This is his only chance.
Lord Rennard
There is no chance of achieving what the noble Lord says he wants to do—set up an independent statutory commission—through this Bill. The noble Lord, among others, seeks to delay the progress of this Bill so that it can go nowhere. There is no prospect of progress in the way the noble Lord intended. It will require a proper, separate Bill, which we would support.
Baroness Hooper (Con)
My Lords, I declare my interest as a life Peer who has sat in your Lordships’ House for 35 years and served the House from the Front Bench, the Back Bench and the Woolsack, and behind the scenes in committees and all-party groups. I also was here for the passage of the reform Bill, which sadly was handled very badly. Although the core purpose of that Bill was to lead to a more “democratic” House of Lords, it did not do so. I cannot say that the fully appointed House of Lords is worse than the mixed House in which I sat for 15 years, which had a mixture of almost equal numbers of life Peers and hereditary Peers. But it is not a democratic House.
I support my noble friend Lord Strathclyde’s amendments. I do not need to go into detail, because he and the noble Earl, Lord Erroll, have explained the situation very clearly. Indeed, it was very helpful to have the intervention from the Minister. It is important to remember that the purpose of the so-called reform Bill was not just to get rid of hereditary Peers, as was said at the time, but to lead to elections of a second Chamber. I have voted in favour of an elected second Chamber in your Lordships’ voting lobbies.
Lord Brown of Eaton-under-Heywood (CB)
My Lords, I strongly support this Bill. It is for that reason that I oppose this amendment, not because I do not see powerful arguments for a statutory HOLAC but because they clearly will not prevail in the context of this Bill; as has already been amply pointed out, they can only destroy the limited but important effect of the Bill as proposed.
I have said in the past that I am a huge admirer of the contributions made by hereditaries, but I fundamentally object to the notion that they should be followed by other hereditaries through an assisted-places scheme. That is what it is, and we have called it so in the past. It is of course right to say that the present scheme is also gender and racially biased, but those considerations fall into insignificance compared to that fundamental objection: that it provides for a well-born group of people to be necessarily the only candidates to fill 90 slots. That is just not appropriate. For the reputation of the House, I urge that this Bill be not hampered by the accretion of a statutory HOLAC, but be accelerated through. The fact that this House is trying to modernise and promote its reputation should be foremost in all our minds.
The thought that, as the Burns report progresses and we diminish in numbers, an ever-larger proportion will be hereditaries is absurd. Besides the Prime Minister’s commitment to her reticence and the fact that we are now diminishing in number, the one response of relevance to the Burns report is that in future there is to be,
“no automatic entitlement to a peerage for any holder of high office in public life”.
If Cabinet Secretaries, CGSs, Chief Metropolitan Police Commissioners, Lord Chief Justices and the like will not be able to count on appointment in future, why on earth should future hereditaries?
Lord Jones of Birmingham (CB)
My Lords, I do not think I need to remind noble Lords that, at this moment, all over the nation, the political class is seen to have failed the country. If ever there was a time when noble Lords could make a stand for connecting more with the people, it is now. I assure noble Lords that, in pubs from Cradley Heath to West Bromwich, to Kings Heath in my home town, they talk of nothing but reform of the hereditary peerage system.
I fully support the noble Lord, Lord Grocott, in what he is trying to achieve. The time has come when, if we truly believe in making the political class that which I know this talented nation can provide for its people, this House must set an example. These amendments—every one of them—should be withdrawn, and after five days of debate over 240 words, we should push this through and stop the farce. We can then get on with not only running the country but reconnecting the political class with the people who have trusted us to look after them.
Lord Adonis
My Lords, I support the amendment of the noble Lord, Lord Strathclyde. It is not an irrelevant amendment and it does not distract from the purpose of the Bill. On the contrary, it is an essential accompaniment to the Bill if it is passed. If it is passed, this House becomes a wholly appointed House, and therefore the mode by which people are appointed to it is not a peripheral issue but one of central importance. I was extremely surprised to hear the noble Lord from the Liberal Democrat Benches, a party that is supposed to be committed to radical constitutional reform, going well beyond this Bill. He was not even prepared to support an acceptable process for people to be nominated to this House in the first place.
I understand the point from the noble Lord, Lord Jones; I would much rather we were not discussing this issue at all. I completely agree that we should be discussing the big issues facing the country, not the distraction that my noble friend Lord Grocott has imposed upon us day after day. However, since my noble friend has forced us to debate this issue, we should get it right. That is very important. The likelihood of having a wholly nominated House will be significantly reinforced by this Bill, because once it passes, you can wave goodbye to the prospect of any more fundamental reform of the House. Indeed, my noble friend does not want to see more fundamental reform of the House of Lords. He is patently honest about his intentions: he wants a nominated House in perpetuity and does not support an elected House. He has been extremely clear about that.
I support an elected House. I am with the noble Lord, Lord Strathclyde. We share a birthday; we have not had much else in common over the years, but we are united in House of Lords reform in our late 50s. It is very important that we do not imperil the urgent issue facing the country as far as parliamentary reform is concerned, which is connecting Parliament as a whole with the people far more effectively than we do at the moment.
Coming to the point made by the noble Lord, Lord Jones, the reason we are in the middle of the Brexit crisis gripping the country is in large part because Parliament has become so divorced from the people, particularly in the Midlands and the north of England, an area my noble friend Lord Grocott knows well. The sense of power being distant has become greater. The idea that a wholly nominated second Chamber will do anything to repair the connection between people and Parliament is farcical. Indeed, it may make it worse than the status quo, because it will put into abeyance any agenda for wider reform.
My noble friend Lord Campbell-Savours, for whom I have the greatest respect, said that we should declare interests. I declare an interest: I am a life Peer appointed to this place by Tony Blair. If my only concern was to remain here as long as possible, I should have a big interest in the passage of this Bill. I am 56 and I hope I have a reasonable lifespan; indeed, there is research by reputable medics which shows that membership of the House of Lords adds 15 years to your life on average—I cannot begin to think why. On that span, I may well be here in 40 years’ time, if this Bill passes, because there will be precious little chance of reform hereafter.
The agenda for House of Lords reform we should pursue is not tinkering changes about whether it is somehow superior to be nominated rather than hereditary. We are equally illegitimate on any democratic principle; let us be very clear about that. As an appointee of Tony Blair, I have no more legitimacy than the noble Lord, Lord Strathclyde, has as an appointee of Charles II—or however far back it goes. In this debate, there has been an air of superiority from life Peers, as against hereditary Peers, but we are equally illegitimate. The only justification for our being here is that this is the existing law of the land. It is a very unsatisfactory law. I was present and working at the heart of government when the reforms of 1999 passed. I can assure the House that it was very much a spatchcocked reform. Let me be completely frank that it was in part motivated by the desire of people my noble friend Lord Grocott not to have wider reform of the House. My noble friend has been anxious at every stage that there should not be a move towards elections and wider reform.
I have spent most of my career engaged in public service reform, infrastructure and now, alas, trying to stop Brexit. I have taken the view that House of Lords reform is not high on the list of either my priorities or, to be frank, the nation’s, but in this big Brexit crisis, where the whole issue of Parliament’s relationship with the people is at the centre, I do not believe it is now possible to duck this issue any further. I am entirely with the noble Lord, Lord Strathclyde: we need a much wider reform of this House. My view is that we need to move towards—
Lord Grocott
I know that my noble friend is a very keen tweeter. I have had the pleasure of reading one or two of his tweets, although I am not sure how I acquired them because I am not part of the system. For example, I think he is comparing our present situation to the one Britain faced in the spring of 1940. He is given to hyperbole, but as he tweets—and no doubt the wisdom he is expounding will be tweeted out to a large number of people as soon as he leaves the Chamber—could he please promise me that he will tweet the details of the amendment he will propose later and the arguments for allowing 40 million people to take part in the next hereditary Peer by-election? Will he also please give an estimate as to what the cost of that would be? Finally, could he explain to us how he thinks that would reconnect him with the public?
Lord Adonis
My Lords, let me be completely frank. If it is a choice between the next election to this House taking place with an electorate of—what is it?
Lord Adonis
Or an election by 40 million of our fellow citizens of this country, I believe it should be the 40 million. I believe that they would support that in the pubs of Birmingham, too.
Lord Rennard
Does the noble Lord accept that the cost of the current system, which we are trying to abolish, is about £600, but the cost of his would be about £80 million?
Lord Adonis
My Lords, that is a completely absurd intervention from the Liberal Democrat Benches. Of course democracy comes with a cost. The question is whether we are prepared to meet it. That is the whole issue. Of course I recognise that my amendment is absurd, but this is the key point. We are talking about amendments that the noble Lord tells us have to be minor changes to the current Bill. It is less absurd than the status quo, which is that the only people who will have a say are these 40 hereditary Peers. It is significantly preferable that the people of the country should have a say.
What I wanted to do was move to a fully elected House in the Bill. I wanted to do what I think is actually Lib Dem policy. I was told by the clerks that was beyond the Long Title. That is why I tabled the amendment. The only amendment that was acceptable was one that would make the election of hereditary Peers subject to the whole electorate. I could not do the really radical thing that I wanted to do, which is to have the election of Members of this House by members of the public from among members of the public—a revolutionary idea, but one we should be implementing.
Lord Forsyth of Drumlean
The noble Lord has stolen my thunder by admitting that his amendment is absurd and part of an exercise to try to talk this legislation out, which is a disgrace. I wonder what Brenda from Bristol would think of his proposition that 40 million people should vote for the hereditaries.
Lord Adonis
I think Brenda from Bristol might be keen to take part in this election, because she currently has no say over any Member of this House. For the first time, Brenda from Bristol would have the opportunity to nominate and vote for somebody to sit alongside the noble Lord, Lord Forsyth. She would give thanks to the noble Lord, Lord Strathclyde, and to me for making it possible, because under the independent Appointments Commission that the noble Lord, Lord Strathclyde, is proposing, Brenda from Bristol might well be nominated, whereas she stands very little chance of Mrs May noticing her, which is the only way to get into this place at the moment.
The Earl of Erroll
If I may assist the noble Lord, funnily enough, a countrywide election could be handled online electronically. That would be quite an interesting prospect.
Lord Adonis
My Lords, the noble Earl is very much into these high-tech solutions. Being old-fashioned and believing that people vote by putting crosses on ballot papers, I do not necessarily go the full way with these revolutionary suggestions, but that might be possible.
I come back to the point about this issue being fundamental, not peripheral. I can tell your Lordships that this issue was considered when the reforms of 1999 were considered. I was in No. 10 when we considered it. The obvious vulnerability to which we were open when we removed the hereditary Peers was that we would be creating a wholly nominated House, and how could we justify the only source of nominations to that House being the Prime Minister? What we did was a classic English compromise. Remember that before the independent Appointments Commission came, the Cross-Benchers were nominated by the Prime Minister too. Let me tell your Lordships, if I may choose my words euphemistically, that the selection was not always uninfluenced by what line those nominees might take in your Lordships’ House on matters of state. Noble Lords might be scandalised by that idea—I can see scandal written on the face of the noble Lord, Lord Strathclyde—but I am afraid these considerations took place. That is why a compromise was reached whereby the independent Members would be appointed by the Appointments Commission, but it was too much for my then boss, Tony Blair, to agree that the party Members should be. There were very big debates about it, particularly about whether there should at least be a role for an independent commission in reviewing the bona fides of those nominated by the party leaders because, again, if I may choose my words euphemistically, sometimes—
Lord Adonis
No, it does not; it is very important to understand what happens. At the moment a health check is undertaken, but not a judgment as to whether the nomination takes into account considerations of racial, ethnic, geographical or gender diversity, or whether that person is appropriate and has the qualities needed in Members of the House. We looked at this halfway house. It was ruled out because my then boss and the then leader of the Conservative Party did not want their control of nominations fettered in any way. Even reviewing the bona fides, in the sense of the health check, was an extremely difficult concession that was granted.
The reason for this was that the party leaders did not want to give up their control of nominations to this place. They did not want any formal process in place by which either their judgment might be challenged, or it might be possible for nominations to be made apart from by them, which is a real issue because—to choose my words delicately again—the leaders of parties almost always represent factions of parties. Let us be clear about it; that is what happens. When Tony Blair was nominating Members to this House—
Motion
The Deputy Speaker (Baroness Garden of Frognal) (LD)
My Lords, I have to read this very slowly. I am instructed by order of the House to say that the Motion “That the Question be now put” is considered to be a most exceptional procedure and the House will not accept it save in circumstances where it is felt to be the only means of ensuring the proper conduct of the business of the House. Further, if a noble Lord who seeks to move it persists in his intention, the practice of the House is that the Question on the Motion is put without debate. Does the noble Lord, Lord Cormack, wish to pursue his question?
Lord Trefgarne
“(2) In section 2, after subsection (4) insert—“(4A) Standing Orders relating to the filling of vacancies must provide that any party or group specified in the Standing Orders need not take up its entitlement to fill any vacancy among the people excepted from section 1, and that in this event the vacancy will be allocated to one of the other parties or groups specified in the Standing Orders, by a method specified in the Standing Orders, for that party or group to fill.””
Lord Trefgarne
My Lords, this amendment is largely self-explanatory but I believe it deals with some of the concerns that have been expressed. Any political party that does not wish to take part in the process of electing hereditary Peers would not have to do so if the amendment were agreed. I beg to move.
The Earl of Caithness
I rise to support my noble friend’s amendment and to speak to Amendment 6, which is similar to that of my noble friend. My noble friend’s amendment asks that vacancies be spread to other parties. I do not believe that that should necessarily be the case and that, if it helps reduce the numbers in the House, a party need not take up a vacancy. When the noble Lord, Lord Campbell-Savours, asked us to declare an interest, I hoped that I might be able to misquote Shakespeare. Some are born with peerages; some have peerages thrust upon them, and some achieve peerages. The great advantage of being a hereditary Peer is that everybody knows why I got my peerage. The other two categories are still open to debate.
Lord Young of Cookham
My noble friend said that he wanted to speak to Amendment 6. That has been ungrouped and is in the next selection.
The Earl of Caithness
My noble friend is absolutely right, but I was trying for the convenience of the House to speed things up a bit. If we talked to both amendments now, as I have done, it might be helpful.
Lord Strathclyde
My Lords, perhaps I may now be allowed to join this debate. I said in my opening remarks that I had not spoken in this debate at all; I had tabled one small amendment on which I was about to reply. If my noble friend Lord Cormack thinks that what he did was a clever little ploy, he has another think coming. As a result of that, I shall now speak on every single amendment that I can. It was outrageous for those who support this Bill to deny me, as the mover of the previous amendment, an opportunity to reply, particularly when the noble Lord, Lord Adonis, had electrified the debate on the purposes of the Bill and, frankly, had shot the fox of the noble Lord, Lord Grocott, in explaining exactly what its motivation was. That is why I am deeply shocked that so many Peers voted against that amendment, which would have provided for a statutory appointments commission.
I would like to calm things down while we go through the rest of the amendments. When the noble Lord, Lord Campbell-Savours, asked Peers to declare whether they were hereditary Peers, I rather cheered that he could not tell the difference. That is the point. I know exactly why I am here. I am here as a result of legislation passed at the end of the last century and by election. I am an elected hereditary Peer under law. More than 200 hereditary Peers voted for me, and in that list I came second.
Lord Strathclyde
No, my Lords, I am not going to give way to the noble Lord until I have finished this point. I was proud to have come second to my late noble friend Lord Ferrers—I hope that my noble friend Lord Trefgarne is not going to argue with me about that—and my noble friend Lord Trefgarne was third. I hope that the next time the noble Lord, Lord Campbell-Savours, gets up, he will tell us in some detail, as the noble Lord, Lord Adonis, did, why he is a Member of this House. Let every other noble Lord who is going to speak declare their interest and explain what brought them to this House and who ticked that box. I am happy now to give way to the noble Lord, Lord Grocott.
Lord Grocott
I am grateful to the noble Lord, Lord Strathclyde, for lowering the temperature. Perhaps we have had just enough of this faux anger. I was going to point out how lucky he was to be elected with 200 votes, because when I first stood in Lichfield and Tamworth I got some 25,000 votes and lost.
Lord Strathclyde
I notice that the noble Lord, Lord Grocott, ducked the opportunity to explain to this House why he is a Member.
Lord Snape
The noble Lord, Lord Strathclyde, said earlier that he was just like everyone else: a hereditary Peer, and one could not tell the difference between the two. Did he think that when we walked through from the Division Lobby a moment ago there was some confusion among noble Lords as to who was the former railwayman and who was the Scottish landowner?
Lord Strathclyde
My Lords, like the noble Lord, Lord Campbell-Savours, I could not possibly comment on that nor tell the difference between the two. It was a pleasure to be in the Lobbies with the noble Lord, Lord Snape, and I was glad that we had a good conversation. However, I say again to my noble friend Lord Cormack that if really wants to have a Division on every single amendment, he may find this Bill delayed a bit more. That is the law of unintended consequences. I suggest that my noble friend does not try it again.
Lord Cormack
Surely my noble friend understands that, having had well over an hour on his amendment, it was time to move on. It was the general wish of the House to move on. His amendment was really without the scope of the Bill. It would be an admirable subject for a separate Bill and I would support it, but what we have seen today—I hope that my noble friend, having provoked me, will concede this—is a rather sophisticated filibuster to ensure that the Bill of the noble Lord, Lord Grocott, does not complete all the amendments. That is a disgrace, given the overwhelming support he has in your Lordships’ House.
Lord Adonis
My Lords, what we have seen today is a serious abuse of the procedures of the House by the noble Lord, Lord Cormack, to stifle debate on a matter of significant public moment. That is what we have seen. I never thought, having been in this House for 15 years now, that I would see this abuse of procedure in the House. The issue of how people are appointed to this House is not a side or minor issue, it is fundamental to the working of our Parliament. I congratulate the noble Lord, Lord Strathclyde, on putting this issue before the House and I completely agree with him that we should continue to raise these matters, because this squalid Bill that the noble Lord, Lord Grocott, has promoted to perpetuate a nominated House of Lords is fundamentally against the interests of the people.
Lord Young of Cookham
My Lords, I gently remind your Lordships that we are meant to be discussing Amendment 5, which is about Standing Orders and the replacement of vacancies among people excepted from Section 1.
Lord Strathclyde
My Lords, I think that that was as a result of an intervention from my noble friend, so perhaps I could just finish my remarks but also say how much I agree with what the noble Lord, Lord Adonis, said. The noble Lord, Lord Grocott, said that this is a short Bill of three clauses. The Maastricht Bill was four clauses long and that was debated for days and days in Committee on the Floor of the House in another place and then in this House, again for several days. The size of the Bill has no relevance to how much it should be debated.
As for the noble Lord, Lord Rennard, with his little lecture on amendments, I look forward to seeing his submission to the Procedure Committee to describe amendments in different ways. I accuse the Liberal Democrats of stretching every single sinew of the clerks’ patience in order to find ways of putting amendments down. I remind my noble friend Lord Cormack that this is the first time, the first day I have spoken on this Bill. He has spoken far longer than I have during the passage of this Bill.
Lord Strathclyde
My Lords, I will get back to the amendment, but I say to the noble Lord, Lord Campbell-Savours, if you deliberately curtail debate in this House, those of us who oppose this Bill will find other ways, perfectly conventionally correct, to continue that debate.
Lord Rennard
Will the noble Lord recall his own very deep anger, which I witnessed, against repeated filibusters during the passage of the Parliamentary Voting System and Constituencies Bill 2011? He decided then that perhaps we should change the procedures of the House to prevent such filibusters. I wonder whether he is still of that view.
Lord Young of Cookham
My Lords, I very gently repeat the encouragement I made a few moments ago that the House should address Amendment 5 in the name of my noble friend.
Lord Strathclyde
My Lords, I shall make one very short point: what the noble Lord, Lord Grocott, has misunderstood in all of this is that although I oppose this Bill, I am prepared to accept it in exchange for an appointments commission, which I think would be extremely sensible. With that, I finish my brief intervention.
The Earl of Erroll
My Lords, briefly, I think we should look at rejigging the balance between the parties represented here, because freezing the 1999 position is silly. I suspect that when we get to Amendment 9, that is the one I shall support. They are not grouped properly, but I pre-warn noble Lords that I think they are interesting and we should look at them.
Lord Grocott
My Lords, this is the fifth amendment of 61 that we have to consider. What has been happening is a complete abuse and I am shocked that the noble Lord, Lord Strathclyde, who has been here since he was very young and has held high office on many occasions, should be party to this filibuster. I am not going to waste the House’s time by responding to every amendment; I am simply going to recommend, as the sponsor of this Bill, that every single amendment is resisted. I appeal to the noble Lord, Lord Trefgarne: even at this stage we have an hour and a quarter left, which should be easily enough to dispose of these amendments, all of which wreck the Bill. He has the opportunity to wreck the Bill quite legitimately by voting against Third Reading after this stage. That is the proper way to do it: the noble Lord, Lord Strathclyde, will perhaps nod in assent to that. If you object to the Bill in principle, you vote against Third Reading. So, please, I appeal to him—for anyone who is watching to make sense of what is happening here—that he does not move the rest of his amendments and we get on with the next business.
Lord Trefgarne
I think that the remarks of the noble Lord, Lord Grocott, were addressed to me rather than to my noble friend. I shall therefore detain your Lordships no longer. I beg to move.
Lord Trefgarne
“(2) In section 2, after subsection (4) insert—“(4A) Standing Orders relating to the filling of vacancies must provide that any party or group specified in the Standing Orders need not take up its entitlement to fill any vacancy among the people excepted from section 1.””
Lord Trefgarne
“(2) For section 2(4) substitute—“(4) Standing Orders must make provision for filling vacancies among the people excepted from section 1 through a nomination and selection process run by the House of Lords Appointments Commission.””
Lord Northbrook
“(2) For section 2(3) to (5) substitute—“(3) Standing Orders must provide for—(a) the 90 people to be excepted for the duration of a Parliament; and(b) the Hereditary Peers Commission, at the beginning of each Parliament, to determine which holders of hereditary peerages should fill the 90 places provided for in subsection (2).(4) Schedule 1A makes provision about the Hereditary Peers Commission.””
Lord Northbrook
My Lords, Amendment 12 states that Standing Orders must provide for 90 people to be excepted for the duration of a Parliament and that a new organisation, a hereditary Peers commission, shall determine at the start of a Parliament which hereditary Peers shall fill the 90 places provided. The amendment also sets out how the commission should be launched immediately after the Bill becomes law, as well as its role in by-elections.
Amendments 32 and 33 set out alternative details of the proposed composition of the commission. Deciding this has given me some difficulty. It is not entirely clear in my mind how it should be made up—whether it should consist of Peers in the House of Lords, excepted Peers or hereditary Peers including those excluded from the House in 1999. For simplicity’s sake I have for now considered, as per Amendment 32, that the commission should,
“comprise two persons nominated by the leader of each political party”.
For the Cross-Bench elections there should be two Members from the Cross Benches, but, as an alternative, they could comprise two independent members of a non-statutory appointments commission. The amendment sets out that the procedure should be carried out at the start of each Parliament, with the first appointments being made immediately after the next general election.
Amendments 32 and 33 also set out criteria for selection. The commission must take account of party balance, age, interests, expertise, commitment to participate and regional representation. Importantly, the commission must ensure that the party balance among the hereditary Peers who are to be Members of the House helps to ensure that the overall party balance reflects the share of the vote secured by the main political parties at the general election. The hereditary Peers commission will also supervise any by-election that takes place during the course of a Parliament.
This amendment should help monitor the balance of the 90 hereditary Peers and goes some way to answering the criticisms of my noble friend Lord Cormack and the Campaign for an Effective Second Chamber that some of the political parties’ representation among the 90 excepted Peers does not reflect their electoral position in the other place. I beg to move.
Viscount Trenchard (Con)
My Lords, I am not sure that my noble friend’s amendment has got the wording precisely correct, but he is right to draw attention to the possibility of changing the Standing Orders. I have thought for a long time that the present Standing Orders providing for only the hereditary Peers to vote in the party bloc by-elections should be changed, on the basis that all Peers in this House are equal. From the beginning, the life Peers on the Cross Benches and the Conservative, Labour and Liberal Democrat Benches should have had a vote alongside their hereditary colleagues.
If that had been the case, there would certainly be a rather different feeling in this House about the obsession of the noble Lord, Lord Grocott, in pursuing this single-issue Bill. He has done it with great tenacity, for which I greatly admire him, but I am surprised that he thinks it proper to bring a single-issue Bill to your Lordships’ House that seeks to unpick a very firm agreement between the House of Lords and the Executive which was made in 1999. The agreement was that the hereditary Peers would remain until the House was properly reformed. It may be 20 years on—it may be 100 years on—but it would be absolutely wrong not to make proper progress in moving to a democratic House but simply to remove one important element of it which was part of the agreement from the beginning.
I do not often find myself in agreement with the noble Lord, Lord Adonis, but I felt today that he could not have put it better. I utterly and completely agree with everything he said. This is not a small issue. It is a fundamental issue that affects the relationship of your Lordships’ House with the Executive and the country. It is fundamentally important in the evolution of your Lordships’ House through hundreds of years of history, and to break the solemn and binding agreement made in 1999 with this piecemeal, cherry-picking piece of legislation would be very regrettable.
The amendment may not be quite right, but your Lordships’ House should look at revising the Standing Orders to remove the unfair difference between life Peers and hereditary Peers, so that all the life Peers in the party blocs could vote on the selection of new hereditaries. That would get rid of the most arcane and slightly ridiculous elections that take place on the Labour and Liberal Democrat Benches.
The Deputy Speaker (Lord Brougham and Vaux) (Con)
My Lords, I should have advised the House, for which I apologise, that if Amendments 12, 13 and 14 are agreed to, I cannot call Amendments 15 to 31 due to pre-emption.
The Earl of Erroll
My Lords, I support Amendments 12, 32 and 33. Funnily enough, on the subject of the declaration of interests, this is one which would potentially remove me in the readjustment and rebalancing of the 90 hereditary Peers who stay here to try to ensure further democratic reform. I am quite happy for that to happen if it will move us forwards in getting a democratic House of Lords. This is where the noble Lord, Lord Adonis, was absolutely spot on.
There is one very useful thing in Amendment 32, which states:
“In exercising its functions, the Commission must ensure … overall party balance in the House of Lords reflects the share of vote secured by the main political parties at the general election”.
The share of the vote would be the number of votes cast overall, and would not reflect the number of MPs in the House of Commons—so you get your proportional representation at least somewhere in Parliament. I am sure the Liberal Democrats will be very pleased with that, because they have been gunning for it for years. That could be a good start and could indicate the way forwards for democracy when we finally start electing both Houses of Parliament.
Lord Howard of Rising (Con)
My Lords, I do not know why my noble friend Lord Trenchard was let off by the noble Lord, Lord Campbell-Savours, from declaring who or what he was, but he is obviously a favoured person. I am a life Peer; I do not know whether I should declare—or indeed whether it is too presumptuous to declare—that I am a kinsman of the Earl Marshal, the noble Duke, the Duke of Norfolk. We share the same name and the same coat of arms; I thought that perhaps for the sake of the noble Lord, Lord Campbell-Savours, I should just mention that.
Lord Colgrain (Con)
My Lords, I support this amendment and Amendment 23, having said before in your Lordships’ House that I endorse the whole House voting on hereditaries while the Burns report is being implemented and comprehensive reform is being put in place.
I am disappointed to see that the noble Baroness, Lady Hayter, is not in her place. I much enjoyed her comment about looking down the rabbit hole as wee Alice. My election by the whole House as a hereditary Peer was greeted by a broadsheet with reference to a Blackadder election. The producer of Blackadder is responsible for another programme—“The Museum of Curiosity”—the title of which I was hoping another broadsheet would have entertained us with, with reference to hereditaries.
It may interest your Lordships to know that yesterday I was on the roof outside the stained glass windows up there, looking at the work that had been done on the stained glass and all the leading, and as I looked in, I felt there was a certain parallel. I looked into the Chamber and could see absolutely nothing at all; we look out from this Chamber and can see daylight and lovely colour, and think that the work we do here is fully understood by the public at large. In fact, they are on the outside, looking in, and can see very little. They do not understand what it is we do, and in particular what hereditaries do.
Hereditaries are not apparatchiks of any particular political hue, whether Fabian Society or Bow Group. We are what the poet Matthew Arnold praised as being “formed men, not crammed men”, formed by the independence of our own thoughts and experience, random, without any party tribalism or essence of our own political importance. When I look at fellow hereditaries across all the Benches, I see Olympic gold medallists, journalists, film and documentary makers, doctors, dentists, the self-employed, owners and managers of SMEs, pilots, specialists in insurance, banking, shipping and property, linguists of all descriptions, married to different nationalities—
Lord Lea of Crondall (Lab)
Is the noble Lord’s logic not that all hereditaries should be Cross-Benchers?
Lord Colgrain
If the noble Lord, Lord Grocott, is successful in his Bill and the hereditary election process is terminated, so is this independence of thought, action and experience, to be replaced by an even greater proportion of life Peers who are ex-MPs, ex-MEPs and representatives of regional assemblies and county councils. The general public have had their fill of the body politic from the other House at the moment—some would say where lunatics are running the asylum—and would relish the chance to have a more catholic representation in your Lordships’ House.
Brexit has not endeared politics to Everyman. We should be mindful of the consequence of decreasing the number of unorthodox Peers who have a less political careerist disposition, and recall the adage, “Be careful what you wish for”.
Lord Adonis
My Lords, this is not a sensible amendment. We have one absurd system for electing hereditary Peers at the moment, which it is proposed be replaced by another. While I could not begin to justify the system of elections that takes place at the moment, I could no more justify the establishment of a commission to do it. The only justification for the status quo is that it is the status quo, and it is best to leave that until we do a radical reform of the House of Lords, which should of course end the election of hereditary Peers entirely.
There are a whole lot of problems in Amendment 32 and the construction of the commission which one could go into, but I am not sure that it is necessary. Rather, I make the point that the best thing to do—this is my fundamental objection to the Bill of my noble friend Lord Grocott—is nothing in respect of the existing House of Lords until there is a sufficient consensus or a Government who are capable of leading towards a radical reform of the Lords, which should fundamentally replace this House with an elected or federal second Chamber. To tinker with the precise way that hereditary Members of this House are appointed, whether it is by some absurd system of election, to be replaced by some equally absurd commission, seems entirely beside the point, playing the game of my noble friend Lord Grocott, which is to make tinkering changes to essentially preserve the status quo. I am not in favour of preserving the status quo—I want radical reform. The Brexit crisis we are going through at the moment and the huge public discontent in the country mean that we can no longer duck this issue of a fundamental reform of this House, and we should put paid to all these tinkering changes.
Lord Strathclyde
My Lords, I am grateful to my noble friend Lord Howard of Rising for reminding us of what happened in 1969 in the House of Commons and the argument that took place there that any change to your Lordships’ House would ultimately mean that it would demand more authority and be able to use its powers more vigorously. To some extent, this argument was made again, not nearly as effectively, during the passage of the House of Lords Act 1999, and proponents of the Act said, “No, it won’t happen”, including the noble Baroness, Lady Jay, who was then Leader of the House.
I wonder whether the House agrees that while initially that was the case, as the years have rolled by the House feels itself even more legitimate, being shorn of hereditary Peers. The automatic right of hereditary Peers to sit and vote in the House of Lords came to an end in 1989. I agree with what the noble Lord, Lord Adonis, said some time ago—that we are all equally legitimate or illegitimate in this House—but the 1999 Act changed something. Therefore, the Bill, proposed by the noble Lord, Lord Grocott, will also change things and allow people to take even greater authority than they would otherwise have done.
I agree with the noble Lord about the status quo. This is not a satisfactory place: I have argued that consistently over the past 20 years. I understand why my noble friends Lord Northbrook and Lord Trefgarne have proposed the amendment. They have tried to solve the conundrum expressed by the noble Lord, Lord Grocott, and find a different way to honour the promise made in 1999, which my noble friend Lord Elton spoke so eloquently about before he had to leave, and this is their solution.
I must say that I am not entirely convinced, but it is a good effort. To return to a previous debate, a proper statutory appointments commission could also look at questions such as party balance, age, interests and expertise, commitment to participate and regional distribution, which I think is increasingly important. Of course, if we had an elected House, we would have solved all those problems, because people would decide. It is therefore unfair to accuse my noble friends of trying to overcomplicate matters. The system we have at the moment is actually very simple and straightforward. It is not adequate or perfect in any way, but it is at least an attempt to try to solve the problem that the noble Lord, Lord Grocott, is trying to solve through his Bill.
Lord Grocott
It obviously does not even begin to solve the problem, because the elephant in the room is that the only people eligible to fill these vacancies will continue to be those who have inherited titles. The noble Lord, Lord Colgrain, said that if you happen to have inherited a title, that gives you a dispassionate view of the world. Let me put it in more personal terms. The noble Lord, Lord Strathclyde, is an hereditary Peer. The noble Lord, Lord Howard, is a life Peer. Explain to me the crucial difference. I thought that they were both Tories who normally voted Tory and are indistinguishable from one another in that respect, but according to the noble Lord, Lord Colgrain, there is a fundamental difference between people who inherited the title and others.
How can it possibly continue to be right that 900 people, in this country of 60 million plus, who happened to have inherited a title have a one in 900 chance of becoming a Member of Parliament by being successful in an hereditary Peers’ by-election; whereas the rest of us—not us life Peers, but the remaining millions—have a roughly one in 75,000 chance of being a Member of Parliament? They have to get elected to do it. Why on earth should the descendants of Messrs Trefgarne, Colgrain, Caithness and Strathclyde have this assisted places scheme, as it has been referred to, which is denied to the rest of the population? Unless someone can give me a sensible answer to that, we will have to agree to disagree and, I hope, vote very soon.
Lord Strathclyde
I am not aware that anyone has made an argument in favour of the hereditary peerage since the end of the previous century. That is why, as I briefly tried to explain, the hereditary peerage came to an end in 1999. We are dealing with the dissatisfaction with the Labour Government. Let us remember who created these by-elections and introduced the Act: it was a Labour Government, whom the noble Lord supported. It was unsatisfactory at the time. I know that it was intended to continue to stage two. That has not happened yet, but we are patient and should continue to be. After all, it was in 1911 that the Liberal Prime Minister promised us reform on a popular basis, and no doubt we will get to that debate later.
I hope that that clarifies for the noble Lord, Lord Grocott, that no one is trying to defend the current position, but we do not want to create a wholly appointed House.
The Earl of Erroll
My Lords, the noble Lord keeps banging on about how the hereditary Peers should not be here, it is appalling, and so on. At the previous general election, most MPs stood for parties which agreed that there should be further democratic reform of the Lords, and a Bill was tabled to do this in 2012—I think it proposed 80% elected. For some reason, it did not go all the way through the House of Commons, but there was basically a will to have democratic reform of the Lords, including in the noble Lord’s party. Why on earth he is now trying to act against his party’s manifesto and most MPs at the previous election, I am not sure.
Lord Young of Cookham
I remind my noble friend of the instructions on page 130 of the Companion. They state very clearly:
“On report no member may speak more than once”,
except in some very constrained circumstances. I think that my noble friend does not fit into one of those exclusions.
The Earl of Caithness
My Lords, the noble Lord, Lord Grocott, prompted me to rise when I was not going to speak on this amendment. He quoted again the odds of becoming a Member of the House of Lords and said that the balance is tilted in favour of the hereditary Peers. Does he agree that once hereditary Peers are removed, the quickest and easiest way to get into this House is to become an MP? A third of the House are ex-MPs and that proportion will go up. Does he agree that that is an equally unjust way to fill the House of Lords, and that the right way is to hold elections?
Lord Brown of Eaton-under-Heywood
My Lords, I suggest that a feature of this group of amendments—indeed, of all the others too with the single exception of Amendment 2A, moved by the noble Lord, Lord Strathclyde—is the destruction of the Bill’s essential purpose: to abolish hereditary Peers for the future but keep our present invaluable 90, or 92. The original proposal of the noble Lord, Lord Strathclyde, was at least consistent with the Bill in the sense that he was prepared, as he said, to accept the abolition of future elections provided that we introduce a statutory HOLAC but that is not true of the rest of these amendments.
Lord Snape
My Lords, I did not intend to speak on this group of amendments but I was provoked to do so by the intervention from the noble Lord, Lord Strathclyde. He was around in 1999; indeed, I am pretty sure that he played a major role in what took place then. It is all very well for the likes of the noble Viscount, Lord Trenchard, to pray in aid the agreement that came about then and use it as an excuse to say that it was a solemn and binding—he did not use that particular phrase—way to reform the House, that it was at only an initial stage and that he intended to continue that reform later, but the noble Lord, Lord Strathclyde, knows full well how the 1999 agreement came about. It was accepted by the Labour Government because the Conservative majority in the House of Lords at the time was enormous. Despite the equally enormous Labour majority down the corridor as a result of the 1997 election, that Conservative majority, in which the noble Lord, Lord Strathclyde, played a major role, made it quite plain that it was either this particular deal or no reform of the House of Lords at all. So let us not have any nonsense that this was merely stage one and talk of solemn and binding promises.
Indeed, that agreement came about without the knowledge and permission of the leader of the Conservative Party in the House of Commons. The leader of the Labour Peers in the House of Lords lost his job as a result of the agreement. He was a descendant of Lord Salisbury. I would have thought that it takes a lot to shift a Salisbury from your Lordships’ House, but that is exactly what happened. The noble Lord, Lord Strathclyde, knows not only where the bodies are buried but I suspect wielded a shovel himself.
Lord Strathclyde
I really do think that I would try the patience of the House if I even attempted to respond to the noble Lord, so I will not do so, except perhaps another time in the bar.
Lord Mancroft (Con)
My Lords, while it is attractive and interesting to look back at the past and see what happened—what the noble Lord, Lord Snape, has been saying is interesting—
Lord Mancroft
I think that the Standing Orders do not require me to declare an interest given that most people in this House know I am a hereditary Peer—and I am delighted to be one. What I am not is a placeman of a Prime Minister.
That is the issue which divides the House today. My noble friend Lord Strathclyde has quite rightly said that no one is defending the hereditary peerage in the way it was defended in 1908 and 1911. That is not the attempt; rather, it is the inadvertent effect of this Bill, which is of concern to many of my noble friends and indeed to the noble Lord, Lord Adonis, who referred to it earlier. By creating an appointed House without an appointments commission, we create a monster whether we want it or not. I say this with great respect to noble Lords throughout the House, however they came to be here.
The joke that is repeated in the newspapers is that this is the second-largest Chamber in the world after the Beijing second Chamber. That is probably correct, but it is pointless and irrelevant. What is much more important is that, if we were to go down the route the noble Lord, Lord Grocott, is seducing us to follow, we will have done something that is unique in the world. We will have created a second Chamber that is virtually a retirement home for the Members of its first Chamber. In other words, we would create a second Chamber which is the poodle of the political establishment of the day.
At the moment, we are going through one of the most difficult periods in our political development—certainly during my time in this House. The passage of Brexit and our departure from the European Union is causing huge problems, the biggest of which is the separation between—
Lord Mancroft
If the noble Lord will kindly allow me to finish, I will give way to him. As I say, we are seeing the separation of the majority in both Houses of Parliament from the majority of the people. Both may mildly have changed their minds in the meantime, but that is what has happened. We have a Parliament which is completely cut off from the way the people are going. If we go down the route that the Bill of the noble Lord, Lord Grocott, takes us, we will move even further in that direction. That is why I am opposed to it.
Lord Mancroft
I think that the noble Lord, Lord Rennard, trumps the noble Lord, Lord Campbell-Savours.
Lord Rennard
My Lords, I recall almost exactly the same speech being made in almost exactly the same terms by the noble Lord, Lord Mancroft, in Committee. It might be helpful to remind noble Lords that paragraph 8.138 of the Companion states:
“Arguments fully deployed either in Committee of the whole House or in Grand Committee should not be repeated at length on report”.
I think it will facilitate our discussion for the next 40 minutes if all noble Lords would adhere to that principle.
Lord Mancroft
I am most grateful to the noble Lord for reminding me of that, but I am afraid that he was referring to the speech I made on last year’s Bill. I did not speak at the Committee stage of this year’s Bill.
Lord Northbrook
My Lords, I am grateful to all those who have participated in the debate on this amendment, including the noble Earl, Lord Erroll, my noble friends Lord Howard of Rising, Lord Strathclyde and Lord Colgrain, and the noble Lord, Lord Adonis. I did not agree with his views, but they are interesting as usual. We have had civilised discussions with the noble and learned Lord, Lord Brown of Eaton-under-Heywood. I opposed his Bill and I am just trying to amend the existing system. I thank also my noble friend Lord Mancroft. There has been sufficient interest in this amendment that I should like to test the opinion of the House.
Lord Northbrook
“(2) Section 2 is amended as follows.(3) At the beginning of subsection (3) insert “Subject to subsection (3A),”(4) After subsection (3) insert—“(3A) An excepted person elected to the House of Lords under subsection (4) after the House of Lords has passed a resolution that steps have been taken to implement paragraphs 29, 35, 50, and 51 of the Burns Report (fixed-term appointments) remains a member of the House of Lords for a period of 10 years beginning with the day on which they receive a Writ of Summons.(3B) In this section “Burns Report” means the report of the Lord Speaker’s committee on the size of the House of Lords, published on 31 October 2017.”(5) At the end of subsection (4)(b) insert “, or(c) a vacancy arises on the end of the 10 year period of an excepted person under subsection (3A),””
Lord Northbrook
My Lords, Amendment 13 is a refined version of the amendment I moved in Committee. It again suggests that once the Burns report has passed into law any excepted person will remain a Member of the House of Lords for 10, rather than 15, years after that date. Limiting the term to 10 years would help the pace of the reduction of the size of the House but would still keep the by-elections after the 10-year period. I am open to suggestion that they could cease when House of Lords reform is complete, including a review of its powers. I beg to move.
Lord Strathclyde
As I understand the amendment, and I am not sure I entirely understand it, my noble friend is trying to co-operate with the idea in the Burns report to reduce the total number. I have not looked at implementation or at paragraphs 29, 35, 50 and 51 of the Burns report, but I think the notion is that once the House of Lords has been reduced to a certain figure, hereditary Peers should not be part of that figure. If they leave after 10 years, however, presumably they will be replaced. I wonder whether my noble friend thinks that will help the reduction.
Earlier in the debate, a view was taken that if the overall size of the House reduced, the portion of hereditary Peers would increase. I agree. However, it would still be a lower proportion of the House than when the elections first took place in 2000 because the size of the House has increased so much. I hope the noble Lord, Lord Grocott, will find that reassuring.
Lord Adonis
I have read this amendment twice, and I do not understand how it works. However, I shall address the big issue underlying it, which is the size of the House. Being today in the business of calling a spade a spade, I might as well carry on doing it because it is in my nature. This obsession with reducing the size of the House is entirely beside the point. If we are to have a large appointed House and its purpose is to function at least reasonably effectively and to keep its membership up to date, it is sensible to make new appointments. Choking off new appointments is basically a preservation activity by existing Members to see that the House is not increased in size by new Members, which would create a greater sense of illegitimacy because the number will be large. To be completely frank, that is not pursued out of any great constitutional principle. It is purely an act of preservation by existing life Peers who do not want to make this House look any more illegitimate than it does at the moment. The best thing to do is against the interests of the House in the short term because it would deprive us of new Members who might—how can I phrase this delicately?—be of an age where they would participate actively and fully in the work of the House, which some noble Lords tend not to as they—I probably ought not to pursue that line of argument because it will not be popular with some noble Lords.
The point is that the Burns report is being, and has been, used—it is the latest in-vogue thing in your Lordships’ House—to pretend that reform is being done while in fact no reform is being done. That idea is as old as the hills. In this House it is always important, to pursue a sense of legitimacy and progress, that some reform is sponsored. The noble Lord, Lord Cormack, has a special working group looking at very modest, tinkering reforms for this House so that he can pretend that he is in favour of progress, although, when he is present, he opposes substantial reforms.
Lord Mancroft
I think the noble Lord means that my noble friend Lord Cormack and his noble friends are preserving the status quo: the comfortable state of the House, which neither the noble Lord nor I approve of.
Lord Adonis
I entirely agree. In so far as I understand what the amendment of the noble Lord, Lord Northbrook, does, I would not make any concessions to the Burns commission. While the House of Lords exists in its current absurd state, it is clearly sensible that new Members be appointed to it, and, frankly, more younger Members would be a good thing, as that would bring the House more into contact with life outside.
What is being engaged in at the moment is displacement activity. The real issue is not whether this House has 600, 700 or 800 Members; it is whether it is appointed and hereditary, and therefore fundamentally illegitimate, or whether it is elected, either directly or, if we had a proper federal system, perhaps like the Bundesrat in Germany, indirectly, and therefore directly relates to the people and/or the devolved institutions of the country, which are themselves elected. All this displacement activity, talking about Burns, about removing the hereditary Peers, about by-elections and, if I may say so to the noble Lord, about hereditary Peers commissions—that was a new idea to me; the latest one today—or about all the other tokenistic reforms that are put forward, is entirely beside the point.
Lord Northbrook
Perhaps I may quickly explain to the noble Lord the intention behind my amendment. Originally it referred to a period of 15 years for the appointment of newly elected hereditary Peers so as to put them on a par with the recommendations of the Burns report. That was not accepted, so I reduced the period to 10 years. The amendment might need retabling at Third Reading. If the Burns report is implemented, by-elections will fall altogether.
Lord Adonis
I am very grateful to the noble Lord for explaining the amendment. I now understand it and will hold in my mind the complex formula that he has just set out. However, my fundamental point is that it does not matter one whit whether this House has 600, 700 or 800 Members; it will be equally legitimate or illegitimate, whatever your view on how many it should have. Those are still very large numbers. I think it will function more effectively with its existing remit if it has a larger number of Members. That will mean that we have a steady flow of new appointments to the House, rather than drying up the appointments. However, all that is fundamentally beside the point. The current House of Lords is illegitimate. It will be just as illegitimate as the existing House, and arguably more so, if it is wholly nominated. The right thing is not to do any tinkering—either of the sort proposed by my noble friend Lord Grocott or any other variant—but to set up a constitutional convention and get to grips with fundamental reform, which, in the context of Brexit and the governance crisis across the United Kingdom at the moment, is long overdue.
Lord Grocott
My Lords, as my noble friend Lord Adonis repeats his arguments on successive amendments, he is getting more and more fluent but that does not make him any more persuasive. As it is now 1.15 pm and we have been going for three hours, it is up to me to say a sentence about what has been happening here today for the benefit of a baffled public, should anyone have been watching.
We have had three days in Committee and a Second Reading, and the Bill has been going for a year and a half. On Report, we have now reached Amendment 13. We have 62 amendments to consider. We have made ridiculously slow progress due to quite deliberate tactics by less than half a dozen Members of this House, of which I am sad to say number one is my noble friend Lord Adonis. Another culprit—I am shocked rather than sad to say—has been the noble Lord, Lord Strathclyde. The number of amendments is almost entirely the responsibility of Messrs Caithness and Trefgarne—of course, they are noble Lords not Messrs. I know and assert that what has been happening is a clear abuse of the procedures of this House. I do not have to worry about that too much; Members must answer for themselves whether they have been abusing the procedures of the House. But the net result is that Bills with overwhelming support will not reach the statute book. It is a bad position for any assembly to be in, when half a dozen people can thwart the direct wishes of hundreds who have expressed themselves in sundry votes on this issue as well as numerous people who are not here.
Lord Howard of Rising
I thank the noble Lord for giving way. What does he think about the House of Commons opposing the will of 17 and a half million people?
Lord Grocott
I do not see the direct relevance of that to what I am saying. I have expressed my views on the 17 and a half million people ad nauseam in this House; to be absolutely clear, I am very much on their side.
What has happened is not just an abuse of the House, a waste of its time and, to a degree, a waste of taxpayers’ money. To be personal about it, it is also a waste of precious Private Members’ time. We rarely get the opportunity to introduce a Private Members’ Bill. It is bad for the House to appear threatening to any future Member who wants to introduce a Private Members’ Bill.
We are closing the debate at 1.30 pm, when I will conclude. But this is a Bill that will not go away; I want to make that quite plain. They all know they are playing King Canute. This Bill will pass. I say that with absolute confidence, although I occasionally wonder whether it will be in my lifetime. The House needs to look very carefully at its procedures to ensure that the farce that we have endured today is not repeated. I hope that the Procedure Committee will see whether there are ways of dealing with this. Otherwise, the risk of further disrepute being brought on our House will only grow.
The Earl of Caithness
My Lords, the noble Lord, Lord Grocott, once again mentioned my noble friend Lord Trefgarne and myself. I did put my name to a small number of amendments, but the noble Lord cannot accuse either my noble friend or me of filibustering by talking for far too long. We have talked very little, to make a short point. When the noble Lord accepted my amendment in Committee, I sat down immediately, as he will recall. I think he has forgotten one person who has prolonged the proceedings today, and that is the noble Lord, Lord Cormack.
Lord Northbrook
My Lords, I thank noble Lords for all their contributions to the debate on my amendment. I feel that it will need a bit of fine-tuning before Third Reading to account for the fact that by-elections will die if and when the Burns report is enacted. For the moment, I beg leave to withdraw my amendment.
Lord Northbrook
“(2) In section 2, after subsection (4) insert—“(4A) Standing Orders must provide for future vacancies to be filled using a method which ensures that over time excepted hereditary peers are elected on a basis which retains a fair representation of hereditary peers representing Scotland, while over time reaching the same proportion of Northern Irish and Welsh excepted hereditary peers in relation to the total number of excepted hereditary peers as the proportion of MPs for Northern Ireland and Wales, in relation to the total number of MPs in the House of Commons.””
Lord Strathclyde
My Lords, may I just check to which amendment my noble friend is speaking? Is it Amendment 15, in the name of my noble friend Lord Cormack, or Amendment 16 in his own name?
Lord Northbrook
My Lords, this amendment provides that,
“future vacancies … be filled using a method which ensures that over time excepted hereditary peers are elected on a basis which retains a fair representation of hereditary peers representing Scotland”—
I am grateful to the noble Lord, Lord Adonis, as I have used the word “maintaining”—
“while over time reaching the same proportion … in relation to the total number of excepted hereditary peers as the proportion of MPs for Northern Ireland and Wales”.
I am not going into extensive detail on it, as the noble Lord, Lord Rennard, has talked about, the unfair treatment of the Irish representative Peers or the Scottish Peers. In fact, there used to be 28 Irish Peers who sat for life on the part of Ireland. However, after what I hope was my erudite exposition, at this hour I am not going to detain the House. For Scotland, 16 Scottish Peers were elected under the Act of Union, and this was maintained until 1963.
The noble Lord, Lord Thomas of Gresford, said I had missed out the situation with Wales, so that is where there is a change in the amendment. He reminded me of the Act of Union of Wales of 1542—although I question that because research for Committee revealed that there were two Acts, of 1536 and 1543, and they should really be called the Laws in Wales Acts, which has been the legal title since 1948. To qualify for by-elections, their peerage would need to have Welsh connections, with priority, as for Scotland and Ireland, being given to those who use their main residence for the purpose of claiming expenses.
This is an excellent opportunity to redress the scarcity of hereditary Northern Ireland Peers and maintain the number of elected Scottish hereditary Peers. I beg to move.
Lord Strathclyde
My Lords, I understand my noble friend’s intention, which is to try to guarantee some sort of regional representation in this House. That is very important, but I am not convinced that this is in fact the right way to do it. His amendment talks about, “hereditary peers representing Scotland”. Being someone who comes from Scotland—I was born in Scotland and live in Scotland—I do not suppose that anyone in Scotland thinks I am representing them. Indeed, the whole purpose of this House is not to represent anyone; we represent ourselves.
Lord Snape
The noble Lord is being too modest. After all, he owns a large chunk of Scotland, so who better to represent it?
Lord Strathclyde
That is a very kind thought from the noble Lord, but I do not represent Scotland or anyone in Scotland any more than he represents railway workers, train drivers, signalmen or anyone else involved in the transport industry. I hope my noble friend will withdraw this amendment and take it away.
Lord Adonis
My noble friend Lord Snape takes huge offence at that remark by the noble Lord, Lord Strathclyde. He represents in his person all the railway workers of the United Kingdom.
Lord Snape
If I may say so, none of them Members of this House, despite what the noble Lord, Lord Colgrain, said earlier.
Lord Strathclyde
Okay, my Lords, I can see that I have lost that particular argument with the noble Lord, Lord Snape.
At the end of the last amendment, the noble Lord, Lord Grocott, wanted to place on the record exactly what was going on. That was his version—his truth. But what is also going on here is an attempt to create an all-appointed House with no guarantees of representation from anywhere in the UK, as laid out in this amendment, which of course would be solved if we had an independent statutory appointments commission. It is in no way an argument to say that, just because the noble Lord, Lord Grocott, believes he is right, no one from any part of the House should be able to argue against him. I have witnessed the noble Lord arguing many times on Bills, and it would be an absurdity to change the rules to stop him, any more than it would be to stop my noble friend Lord Caithness.
Lord Grocott
My Lords, I am absolutely in favour of every Member of this House expressing their views on whatever subject is before us in a reasonable way and for considerable periods of time. The problem we have here is that it is not only me who wants this Bill to go through but the overwhelming majority of people in this House. There is a tiny minority, all of whom we have heard from today. They are perfectly at liberty to speak—I fully support that—but I do not support their right to use procedural tricks to thwart the will of the majority.
Lord Strathclyde
My Lords, I do not look forward to the next Labour Government, but there will be one. When that Government come in, I look forward to seeing, in their first Session of Parliament, a House of Lords Act, or a fully formed constitutional reform with this change at its heart. That is how things happen in this country: you win elections and control the legislative agenda. There is an opportunity for Private Members’ Bills, but this is a major constitutional issue and I do not think it is appropriate for the Private Members procedure. That is the underlying problem. The noble Lord, Lord Adonis, and I disagree on most things, coming from opposite sides of the political fence, but we share a birthday and stand shoulder-to-shoulder on opposing this piece of legislation, because it is the wrong thing to do.
Lord Russell of Liverpool (CB)
My Lords, before I—and, I suspect, many others in this House—lose the will to live, I declare an interest: Lloyd George knew my great-great-grandfather, and that is why I am here. I also share a reflection from my great-grandfather, Stanley Baldwin. When he arrived in this House, he said, “It is one of life’s great ironies that I am arriving in a place to which I have sent so many people, devoutly hoping never to see them again”. I suspect some of their descendants have contributed to these proceedings. This is the law of intended consequences, rather than the law of unintended consequences.
There are 90 hereditary Peers in your Lordships’ House. I would suggest that the fact that so few of us turn up at these proceedings, following this Bill, and an even smaller number take part is not an accident. Most of us have absented ourselves quite deliberately, first, because there is an obvious conflict of interest, and secondly, because, although I have not taken John Curtice-type soundings on this, I suspect that the great majority are strongly in sympathy and in favour of the noble Lord, Lord Grocott. I wanted to put that on the record.
Lord Grocott
My Lords, I am profoundly grateful for that intervention from the noble Lord, Lord Russell, which is one of the most effective contributions that we have heard in this long discussion. I stand now because we are close enough to 1.30, when we had agreed that this would finish, to move that debate on amendments be now adjourned.
Lord Northbrook
My Lords, I am thankful to all noble Lords who spoke. I beg leave to withdraw the amendment.