Representation of the People (Electoral Registration Data Schemes) Regulations 2011
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Lord McNally
That the Grand Committee do report to the House that it has considered the Representation of the People (Electoral Registration Data Schemes) Regulations 2011.
Relevant document: 20th Report from the Joint Committee on Statutory Instruments.
The Minister of State, Ministry of Justice (Lord McNally)
My Lords, the order and regulations will together provide the legal basis for the electoral registration data-matching trial that my honourable friend the Minister for Political and Constitutional Reform announced in another place on 15 September 2010. These instruments will enable the sharing and matching of specified data between local authority electoral registration officers and public authorities that also hold certain kinds of specified data.
It might assist the Committee if, before going into greater depth about what the instruments will do, I were to supply some context and background to the order and regulations. The view that there is a need for change in our arrangements for electoral registration is, I know, widely shared. It is important that the register is as accurate and as complete as possible. We need to make sure that the system is not vulnerable to fraud, while ensuring at the same time that people are not prevented from registering to vote because the system is too difficult to use or because they are not aware of their rights.
In 2014, the Government plan to introduce individual electoral registration in place of the outdated system of household registration. Alongside that, however, we believe that there are other tools that we may be able to use to tackle under-registration and to ensure that people have every opportunity to register. Data matching is one of them.
Data matching involves comparing the electoral register against other public databases in order to identify people who are currently missing from the register. They can then be contacted by electoral registration officials and offered the opportunity to register if they are eligible to vote. We envisage that through data matching we will also be able to take steps to identify and remove any individuals who are on the register but are not entitled to be.
We believe that data matching has the potential to reduce the incidence of under-registration among specific groups in our society, but we do not yet know enough. We also believe that data matching has the potential to tackle inaccuracy in our electoral registers, but, again, we do not yet know enough. We need to test the effectiveness of data matching in this context and see what kinds of data are most useful in improving the accuracy and completeness of the register. We therefore plan to trial data matching over the next few months in a range of electoral registration areas in England, Wales and Scotland. The instruments before the Committee today will enable that to happen. The results of the trial will be evaluated with the assistance of the Electoral Commission and will help the Government to decide whether to seek to legislate to extend data matching permanently across all local authorities.
The order will enable specified data-holding public authorities, including the Department for Work and Pensions, HM Revenue and Customs and the Department for Education, to provide electoral registration officers with the data necessary for their planned data-matching schemes. The 22 local authorities planning to take part in the trial are listed in the schedule to the order and we are grateful to them and to the data-holding authorities that will be participating for the work that they are doing.
Members of the Committee may have noticed that there are in fact 23 local authorities in the schedule. This is because Cardiff has unfortunately had to withdraw since the order was laid. I am, however, very happy to confirm that Peterborough, which withdrew prior to the order being debated in another place, has since been able to resolve its problems and will after all be taking part. Cardiff’s withdrawal does not affect the validity of the order, because being included in the schedule does not compel an area to take part. Nor will it affect the validity of the eventual results of the pilot schemes. Even if another one or two of the pilot schemes were to run into unforeseen practical difficulties of the kind recently encountered by Peterborough and Cardiff, there will still be enough of them for the results to be useful.
The order stipulates that before any data can be transferred a written agreement must be in place between the electoral registration officer and the data-holding authority, setting out the requirements as to the processing, transfer, storage, destruction and security of the data concerned. It also sets 1 March 2012 as the date by which each of the schemes must have been evaluated.
For the information of the Committee, let me say that 1 March 2012—not the end of December 2011, as mentioned in the draft agreement attached to the Explanatory Memorandum—will now be the date by which all data created for the purposes of the pilot schemes must be destroyed, except of course where data have been added to the electoral register in the mean time. Since that version of the draft agreement was prepared, the Electoral Commission has told us that it would assist its evaluation of the pilot schemes if the data were still to be available, should the commission need to see it. We agree with the commission, so the final version of the agreement will reflect this change of date.
The regulations complement the order by enabling registration officers to supply a copy of their full register, or an extract from it, to another person for it to be compared with the information that is to be provided under a data-matching scheme. The regulations also provide that a person to whom the copy of the register is passed may not do anything with it for any other purpose or without the registration officer’s consent. This means that registration officers will not be given data relating to everyone in their area. They will receive only targeted information about particular individuals, thus ensuring that unnecessary personal data are not transferred to registration officers and that the data that they receive are provided to them for a reason.
Data-matching schemes may lead to greater accuracy and improved levels of registration in some electoral registration areas and among some groups within the next few months. If so, the schemes may be the key to greater accuracy and improved levels of registration on a much larger scale within the next few years. However, we need to know for certain and we need to be able to produce the evidence. That is why it is so important to put these trials in hand. The order and regulations will enable us to do that and I commend them to the Committee.
Lord Kennedy of Southwark
My Lords, I declare that I am an electoral commissioner, having joined the commission on 1 October last year. I fully support the thrust of the commission’s views on these important statutory instruments.
I am sure that all noble Lords want completeness and accuracy of electoral registers. We want confidence in our democracy and our electoral system. We want confidence that you will be able to vote if you want to and if you are eligible. We want confidence in those who have been elected to serve at all levels of government.
It is important that clear and reliable evidence on data matching is produced and that the evidence is robustly assessed. It is particularly important that this assessment is done carefully and represents fully what can be achieved, not least because data matching is envisaged as the primary method of ensuring the continued completeness of individual registration in 2014-15. I should welcome a response from the noble Lord, Lord McNally, on that specific point and on the commission’s concern that the timing of the schemes will coincide with the annual canvass of electors. It is important that there is clarity about the design of the data-matching schemes, so that the impact and any follow-up activity can be demonstrated beyond what the annual canvass activity would normally achieve.
Can the noble Lord give any further information on the agreement to process the data? It is particularly important that personal data are handled carefully and are protected. The commission has specifically recommended that the approach to the delivery of each pilot area should also form part of any written agreement, so that the commission can fully evaluate each scheme.
Finally, the noble Lord will be aware that the commission is required to produce an evaluation report on the operation of the scheme by 1 March 2012. To achieve this, it will be important that EROs are able to provide the commission at agreed intervals during the schemes’ operation with the information needed. Clarity about the design and delivery of each scheme will ensure that the commission is able to undertake its statutory evaluation effectively and that the results can inform future policy development on electoral registration. I am of course happy for the noble Lord to write to me to clarify a number of these points.
Lord McNally
My Lords, in discussions on electoral registration, nothing causes the heart to sink so much as the sight in the Room of the previous Minister, a member of the Electoral Commission and the guru in my own party on these matters. That will in part explain why, in making this response, I now have enough notes to take us safely to six o’clock. I hope that the officials will take careful note if I manage to miss a number of the questions that were asked; I will ensure that I follow them up in writing.
Perhaps the innocent observer will have missed the fact that all contributions welcomed these statutory instruments. I am extremely grateful for the agreement. I share with the noble Baroness, Lady Royall, a lifelong belief that using your vote as a citizen is one of your most important duties and responsibilities. It is perhaps a sad fact that I was brought up in a household in a constituency that had a 15,000 Conservative majority, yet at every election my mother and father would go out resolutely to vote Labour. Indeed, in those days when having a car to deliver you to the polling station was something of a luxury, my mother used to take special pride in going there in a Conservative car to vote Labour.
I am grateful for the contribution of the noble Lord, Lord Kennedy. I am pleased to see him on the Electoral Commission. When it was first established, the noble Baroness, Lady Gould, I and others who had worked for political parties on all Benches argued strongly that in order to make it effective the Electoral Commission should contain people with direct experience of party-political organisation. His service on the commission, given his experience, is a plus, the change being carried through by the previous Government.
The exercise of the pilot and the annual register will be kept separate, so that it will be possible to make a comparison. It is our aim that electoral registration officers should provide information at intervals, so that pilots, and the format and frequency of the reports to the Cabinet Office and the Electoral Commission, will be agreed. There will therefore be regular reports. We have asked each pilot to pay particular attention to that point. Since development work began, we have emphasised the importance of the pilots doing everything that they can to distinguish the impact of data matching and related follow-up activities from the usual impact of the annual canvass. I doubt whether that will be perfect, but it will certainly be attempted.
The Cabinet Office and the electoral administrators already have well developed proposals to evaluate the impact of the pilots and we will continue to work together on them as they develop. With the assistance of the Electoral Commission, we will continue to offer help and guidance on appropriate approaches that we consider will be most likely to produce useful evidence. Therefore, I hope that we are keeping in close contact with the Electoral Commission and the electoral registration officers.
It is always difficult to respond to complaints about either speed or slowness, both of which the noble Lord, Lord Wills, managed to make in a speech that he said was intended to be supportive. We will do our best to make these things work effectively and, as I said, most of the participating organisations will do likewise.
The noble Lord, Lord Tyler, asked how the participating authorities were selected. All local authorities across England and Wales were invited to apply to take part in the data-matching pilots. There will be no data-matching pilots in Northern Ireland, which already has individual registration. The individual electoral registration system was introduced in Northern Ireland under the provisions of the Electoral Fraud (Northern Ireland) Act 2002. The Act replaced household registration with individual registration, whereby each eligible elector is required to complete their own electoral registration form.
The noble Lord, Lord Tyler, and others made a point with which I sympathise. I am, as I think was the noble Lord, Lord Wills, the Minister responsible for data protection and, when these proposals first landed on my desk from the Cabinet Office, alarm bells rang. I do not feel comfortable about government departments sharing data in a way that could have an impact on civil liberties unless provisions are put in place and I am happy to assure the Committee that we have taken the necessary steps to make sure that those protections are in place. We will follow the Government’s Information Assurance Standard 6 produced by the Communications-Electronics Security Group, the Government’s central information assurance experts. This standard governs the use, storage, transfer and destruction of data. We have consulted over our specific plans with the CESG and those responsible in the Cabinet Office for information security, as well as participating departments. Under Article 4 of the statutory instrument, all participants, including electoral registration officers, must sign agreements to comply with the standards. The Cabinet Office is also providing information assurance training.
The noble Lord, Lord Tyler, asked whether there will be a two-way flow of information. The answer is no. Departments will not receive information. This will be a one-way process. However, as I said, I think that when government departments, for the most honourable and meritorious reasons, start sharing information, there is a need for those concerned with data protection to be on their guard. I see in his place my noble friend Lord Thomas of Gresford. I usually refer to him by saying, “An old Liberal once told me”, but I think that in this case I can identify him—to be distinguished, of course, from the young Liberals. My noble friend once memorably said to me that there should be a limit on how much information the state holds on an individual in a free society. I think that that is true and I constantly worry about the capacity of new technologies to cross-reference information in a way that could undermine civil liberties. In this case, I can say that we are taking the necessary steps to ensure that this information is used specifically, in a one-way direction and with the necessary protections in place.
The noble Lord, Lord Jones, properly reminded us that, as in Northern Ireland, much of the exercise was to ensure that the system was fraud-free, secret and clean, and that the integrity of the ballot box was protected. I hope that successive Governments will make clear their intention in that respect. Indeed, people have recently been sent to prison for electoral fraud, and rightly so. Anyone contemplating electoral fraud should be well aware that we would use all possible means to ensure that they were prosecuted for it. Cardiff pulled out too late for us to make changes to the order and to find another Welsh example. As a strong supporter of devolution, I am always grateful that the specific matters concerning the responsibilities of Welsh Ministers are nothing to do with me.
Not surprisingly, today’s Guardian article was drawn to my attention. It is not possible to indicate with precision the registration rate in the UK because the size of the eligible population is not known, but the Electoral Commission will soon be conducting research into electoral registration levels in a project funded by the Cabinet Office. The study will check a statistically significant sample of electoral registers at local authority level against the people actually living at these addresses. The work will involve some 5,000 interviews in some 50 local authority areas across Britain.
I have noticed in debating previous Bills that a kind of victim culture has been growing up in the Labour Party that somehow the Government are wickedly keeping 3.5 million—“implied Labour”—voters off the register. No one is being kept off the electoral register. I have always been slightly suspicious of these figures and doubt whether at any time in human history there has been a 100 per cent completed electoral register. Indeed, I am old enough to remember when the register used to be updated twice a year and Harold Wilson used carefully to calculate the dates of elections so that the new register could be used, as the old ones became quickly out of date. Trying to put an electoral register together—
Lord Wills
I am grateful to the Minister for giving way. As he seemed to miss my comment, I want to stress that I am very supportive of him and these measures. However, is he aware that for all practical purposes, large parts of the country achieve 100 per cent registration and that their registers are comprehensive and accurate? It is not therefore some distant objective that we will never achieve, because some parts of the country are already achieving it. I accept that the Government are trying to reach that objective and I do not think that there is anything wilful about this. However, does the Minister accept that the task is to get all parts of the country up to that standard?
Lord McNally
Yes. However, I refer to one of the points that my noble friend Lord Tyler made in the most enjoyable exchange that he had with the noble Lord, Lord Wills. The trouble with my noble friend Lord Tyler is that not only does he know the facts but he knows the dates as well; he is a difficult man to grapple with. He made the point that voter registration is not only a mechanical issue but a political one. We all have to get out and knock on doors and convince people. I freely accept that in some areas it is more difficult to obtain registration.
I make no apologies for pushing ahead with individual registration because, although there may be problems initially in the transition—and we are trying to put in place measures that will mitigate some of the problems—we are convinced that individual registration is a way to both avoid fraud and encourage individual participation in our democratic process.
Lord Jones
I am grateful that the Minister is grappling. First, can a Minister direct the electoral registration officer? Secondly, was he confirming that the city of Cardiff has pulled out of the pilot? If he was, I should tell him that I did not know and that I have relied on the documents that he presented to your Lordships saying that it was part of the scheme. He may wish to answer those two questions.
Lord McNally
I shall write to the noble Lord on his first question. As I understand it, Cardiff withdrew but, again, I shall write to clarify the situation.
Lord Jones
The Minister will concede that we needed to be told in proceedings that the schedule was inaccurate.
Lord McNally
I will check, but I think that I said that in my opening remarks.
Lord McNally
This has been a useful and question-filled debate, although we will have to wait for Hansard to find out whether it has been fact-filled. It is important that we have respect for the electoral register and for our democratic process. On balance, I have always been in favour of the stubby pencil inside a voting booth as a sign of the citizen’s commitment to making democracy work. These days, if you ever go checking numbers outside a polling station, it is sad to see elderly people struggling to make it to exercise that right and young people walking past. It is part of our task as politicians to reverse that process. We have to make democracy work and I hope that these instruments will make some contribution towards that. I sincerely thank all those who have contributed to a very well informed debate.