Parliamentary Voting System and Constituencies Bill
(Limited Text - Ministerial Extracts only)
Read Full debate19:57 - Division on Amendment 89BA - Ayes: 149 / Noes: 196 - Amendment 89BA disagreed.
The Advocate-General for Scotland (Lord Wallace of Tankerness)
My Lords, I start by thanking the noble Lord, Lord Touhig, for moving this amendment almost three hours ago, and for the measured and considered way in which he advanced his arguments. He encouraged Members of the Committee to be thoughtful, and triggered a considerable number of thoughtful and thought-provoking contributions to the debate. They ranged widely over parliamentary, cultural and family history, and over the contribution that distinguished Members representing Welsh constituencies have made to the parliamentary democracy of our United Kingdom. I will also refer at the outset to the point made by the noble Lord, Lord Elystan-Morgan, about Wales being a nation. My noble friend Lord Morgan and the noble Lord, Lord Rowe-Beddoe, echoed that point. Certainly I accept that Wales is one of the constituent nations of our United Kingdom. I, too, would bristle if I looked up “Wales” in an encyclopaedia and found, “See under England”. Even though I am not Welsh, I would find that offensive.
The amendment seeks to guarantee a minimum of 35 constituencies in Wales. In response to the point made by the noble Lord, Lord Bach, it is my understanding that when there was a debate on Report in the other place on the provisions of the Bill to equalise the size of constituencies, there were contributions from 16 Welsh MPs. Although the Government did give consideration to a Welsh Grand Committee, the Secretary of State for Wales and my honourable friend Mr Mark Harper, the Minister who is responsible for this Bill in the other place, held a meeting to which all Welsh MPs were invited. There was extensive discussion and Mr Harper offered individual follow-up meetings to all Welsh Members. That was the spirit in which the meeting took place.
Lord Kinnock
My Lords, will the noble and learned Lord give way as a parliamentarian?
Lord Wallace of Tankerness
No; I wish to answer some of the points that have been made in the debate.
The amendment stipulates the figure of 35, which—as was said by one or two contributors, not least by the noble Lord, Lord Touhig, in moving his amendment—reflects the figure set out in the 1986 Act, which stated that there should be no fewer than 35 Members from Wales. I observe that the same Act stated that there would be no fewer than 71 Members for Scotland. That provision was repealed by the Labour Government. I do not complain about that; indeed, I encouraged them to do so. The number of Members of Parliament from Scotland under the Labour Government fell from 72 to 59, and is set to fall again under the Bill to 52, which is about a 26 per cent reduction. That will be relevant when we come to consider issues about devolution raised by the noble Baroness, Lady Finlay of Llandaff, and the noble Lord, Lord Elystan-Morgan.
My noble friend Lord Roberts of Conwy gave a clear expression of the Government's position as admitted in evidence. One of the underlying purposes of the Bill is to try to secure fairness—equal vote, equal value—throughout the United Kingdom. The amendment which has been moved and those which have been spoken to would go against that fairness of one vote, one value throughout the United Kingdom. We believe that every elector’s vote in elections to the other place should have the same value, regardless of where that vote is cast in the United Kingdom. It is important to emphasise that we are not in any way proposing less representation for Wales than other parts of the United Kingdom. Indeed, the value of a vote in Wales will be the same as the value of a vote in England, the same as the value of a vote in Scotland, the same as the value of a vote in Northern Ireland.
We have allowed for a 10 per cent range of tolerance between the largest and smallest constituency to take account of local and other factors. The noble and learned Lord, Lord Morris of Aberavon, gave the impression—a caricature—that it was simply a matter of drawing square boxes on maps. That is not the case and does great disservice to the Boundary Commission, which will look at the issues and take account, to the extent that it thinks fit, of important matters such as special geographical considerations—the size, shape and accessibility of a constituency. The noble and learned Lord put it very well when he gave the illustration that a parliamentary boundary does not define which rugby team you will play for. As my noble friend Lord Crickhowell, said, when people are asked where they belong, they tend to answer in terms of old counties or smaller towns and communities. They tend not to identify where they belong in terms of parliamentary constituencies.
I am not sure whether my noble friend Lord Steel is present—I saw him at one point—but he will recall that when he represented the seat of Roxburgh, Selkirk and Peebles, having the rugby teams of Hawick and Gala in the same constituency set up some interesting issues of rivalry between different communities. As I said in response to a debate yesterday evening, Members of Parliament by their nature represent a number of different communities within their constituency. The noble Viscount, Lord Tenby, and the noble Lord, Lord Bach, made the point about size and accessibility. Brecon and Radnorshire, which is the largest constituency in Wales, is often given as an example. To give a sense of perspective, it is worth stating that at 1,160 square miles, the current Brecon and Radnorshire constituency is considerably smaller than the constituency represented by my honourable friend Lord Thurso in Caithness, Sutherland and Easter Ross, which is just under three times larger than Brecon and Radnorshire. Then there is the constituency represented by my right honourable friend Mr Charles Kennedy, of 4,909 square miles. Of course, there are geographical limitations which the Government have submitted in the rules.
Lord Thomas of Gresford
My Lords, does my noble and learned friend recall that the late Lord Livsey, who for many years was the Member of Parliament for the then Brecon and Radnor constituency, was one of the most loved Members of Parliament, hard-working and known throughout the whole of that constituency?
Lord Wallace of Tankerness
I think that that would be accepted and acknowledged on all sides of the Committee. It is not just me standing here saying that it is feasible to represent a constituency of such a size, but the electors of Caithness, Sutherland and Easter Ross, and of Ross, Skye and Lochaber have returned their respective Members of Parliament on several occasions, which suggests that they have been able to address the genuine needs of a constituency covering many communities.
Lord Kinnock
As we are explicitly discussing Wales, and the issue of Brecon and Radnorshire has been brought up, how does the noble and learned Lord suggest that that most rural constituency in Wales and England, with an electorate of 58,000, can be brought into consistency with the Government’s formula of a tolerance of 5 per cent either way and about 75,000 or 76,000 without making the size of the constituency now formed by Brecon and Radnorshire absolutely absurd and communication in that constituency almost beyond reach? I recognise the experience in Scotland. To create a constituency in mid-Wales that has about 70,000 to 80,000 constituents, there would have to be an effective destruction of neighbouring constituencies—to the north, in Montgomeryshire; or to the west, in Ceredigion; or to the south, in the former mining valleys. A suggestion about how a cogent constituency of between 70,000 and 80,000 can be formed would be helpful to the debate.
Lord Wallace of Tankerness
The first thing to note, because it happened very late at night, is that the Government accepted an amendment from my noble friend Lord Tyler with regard to existing constituencies being a factor to which the Boundary Commission may, if it sees fit, have regard. Perhaps that was not widely appreciated because there were not many of us around.
Lord Wallace of Tankerness
I think that the noble Lord congratulated us on that at the time.
The point I am trying to make is that the two Scottish highland constituencies to which I referred are substantially greater than Brecon and Radnorshire—in the case of Caithness, Sutherland and Easter Ross, almost three times as big; in the case of Ross, Skye and Lochaber, more than four times as big. We would have to go a very long way before we got anywhere near constituencies of that size, which have equally challenging geographical issues. Nevertheless, Members of Parliament have successfully represented those constituencies, as can be seen by the fact that they have been returned regularly in elections.
I take on the genuine issue, which several noble Lords have mentioned, of the effect of the interaction with the Union. I express myself as a passionate advocate of the benefits of the United Kingdom, while at the same time as someone who has vociferously argued for devolution. I recognise the sincerity with which the noble Lord, Lord Touhig, raised his concern about the Union.
My point, on which the noble Lord, Lord Rowlands, picked me up, is not unreasonable. I think that there is an issue of fairness, and I have not yet heard the argument why it is in some way unfair that a vote in Cardiff should have the same value as a vote in Belfast, London and Edinburgh. Indeed, those who argue the contrary must tell us what explanation we give to a voter in Edinburgh that a vote in Cardiff should be worth more. I have not yet heard that explanation. Neither do I believe that in some way that difference in value will cement Wales’s place in the Union. In fact, I think there is some merit in saying that if all parts of the Union are treated equally, that is positive. I would have hesitated to say it, because I am not Welsh, but my noble friend Lord Crickhowell made the point that the Welsh nation can have true confidence in itself. It does not need overrepresentation in order to have confidence in itself. That is worth bearing in mind.
I come on to the point raised by the noble Lord, Lord Elystan-Morgan, when he asked about various points I had made in the past about devolution. Points have been raised about the Speaker’s Conference. As my noble friend Lord Crickhowell said, much has happened since the 1944 Speaker’s Conference, and much has happened since the remarks attributed to my right honourable friend Kenneth Clarke in 1992. We cannot hypothetically say, “What would happen to this Bill if we had the Wales Office and had never had devolution?”. That is not the situation today. It is the case that on the back of devolution, Scotland reduced its representation from 72 to 59, but devolution is not relevant to the proposals that the Government are putting forward because we are not seeking to make a distinction between Scotland, which has a different form of devolution from Wales, Wales, which may have more powers following the referendum on 3 March, Northern Ireland, which has a different system of devolution again, and England, which has no devolved government.
Noble Lords made the point that the United Kingdom Parliament deals with macroeconomic policies, defence—the noble Baroness, Lady Finlay, spoke of the contribution that the constituent parts of the United Kingdom make to the Armed Forces—social security matters and pensions matters. The Government are saying that representation should be fair in all parts of the United Kingdom. There may be some who would argue that because Scotland has its Parliament dealing with a range of domestic issues, there could even be an argument for underrepresentation, but that is not the position of the Government. The Government believe that there should be equal representation in all parts of the United Kingdom, and that is what underlies this. We do not find it particularly acceptable that, for example, the constituency of Arfon, which was mentioned by my noble friend Lord Roberts of Conwy, has an electorate of just over 40,000 whereas Falkirk has an electorate of 80,000. Indeed, it was pointed out that even within Wales, there are substantial divergences in the number of electors.
I shall pick up the point on the Welsh language. I cannot see why the reduction in the number of Members from Wales would have an impact on the Welsh language. As my noble friend Lord Crickhowell said, some of the great steps forward for the Welsh language were taken by people who were not Welsh-speaking in response to those who made very good, cogent arguments for the Welsh language over many years. It is the case that many Members of Parliament in our inner cities are dealing with constituencies in which a variety of languages are used by people from minority ethnic communities.
The noble Lord, Lord Williamson, made an important and valuable contribution when he referred to his manuscript amendment and there will be an opportunity to debate it more fully when—when—we come to Clause 18. The amendment would, as I understand it, mean that the first boundary review would take place as though the new rules were in force; the existing legislation would remain in force in the mean time; the new boundary provisions would be commenced only once the Boundary Commissions had reported; and votes in both Houses on the commencement order would be at that point. The House would effectively have the choice of commencing the new rules or retaining the 1986 Act rules. I recognise the intention behind this amendment, which was briefly spoken to by the noble Lord, and I salute the helpful spirit in which it was proposed. We will clearly want to give thought to the issues that it raises, but I will put down a caveat in that it invites Parliament to do what it does not usually do. Parliament usually sets the rules for the Boundary Commission and does not give people who have more than a vested interest in them the opportunity to decide whether they should introduce new boundaries that have a direct effect on them. Having said that, it is an innovative suggestion that I would be very happy to discuss with the noble Lord. I hope we will be able to have that discussion soon before we debate his amendment in due course.
In conclusion, I repeat that the provisions in this Bill will mean a reduction in the number of Welsh constituencies, just as in the rest of the United Kingdom. In opening this debate, the noble Lord, Lord Touhig, pointed out that Wales has 5 per cent of the population of the United Kingdom. On the 2009 figures, the overall proportion of Welsh seats in Westminster would go from 6 per cent to 5 per cent. I do not believe that that poses a threat to the Union. If anything, I believe that greater fairness and equality can help strengthen our union, and I beg the noble Lord to withdraw his amendment.
Lord Touhig
My Lords, we have had a first-class debate. Seventeen of your Lordships have taken part. We have had a debate in the unelected House of our Parliament that the Government denied the elected House. In responding, the Minister took an intervention from the noble Lord, Lord Thomas, who mentioned the late Lord Livsey. I, too, knew, admired and respected Richard Livsey, and if he were here tonight, I have no doubt about which side of the argument he would be on. I hope the House will forgive me if I do not follow the normal courtesy and respond to all the contributions that were made because I do not think that I could match the eloquence and power of the argument. We have spent just over three hours on this debate, and I am not here unnecessarily to take up your Lordships’ time.
Those who have spoken in this debate and I have sought to improve this Bill in the interests of the people of Wales. I am disappointed by the Minister’s response. We have clearly failed to impress upon the Government our concerns about the adverse impact this Bill will have on Wales. I believe that we have approached the debate in the best traditions of your Lordships' House. We have expressed our view and our concerns about the implications of this Bill on Wales. We have not been prescriptive and said, “Here’s a problem; here’s an answer; you must take it”. Noble Lords who have signed the amendments in this group have put their names to not one but three possible alternatives which the Government might have considered and reflected upon and come back at a later stage with some proposal that might have assuaged our fears. I believe it is in the best traditions of your Lordships' House to give the democratically elected Government time to reflect on the arguments that have been put. We offered an olive branch, but I fear that that olive branch has been tossed away. I worry because those of us who feel passionately about Wales and about the Union of the United Kingdom intend to continue to make this argument and this debate. The other place did not have an opportunity to debate these amendments or to express a view. It is with a heavy heart that I feel it is necessary to divide your Lordships' House so that we may express an opinion on Amendment 89BA.