Electoral Registration and Administration Bill
(Limited Text - Ministerial Extracts only)
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Baroness Hayter of Kentish Town
My Lords, it is very hard to imagine that the Government will say anything but yes to the amendment—no, I do not think that I am quite getting that message back.
I am sorry about that. I hope that between now and Report, the Government will think about the amendment seriously. The numbers here may not be as full as they were earlier, but it is clear that it is pretty widely supported. We on all these Benches fully support it. As we have heard, so does the Electoral Commission. The noble Lord, Lord Tyler, suggested that it has been left up to individual assistant returning officers. It is not fair to put it on to their shoulders, particularly if there is a TV camera looking over them at that point, whether they decide to be sensible or not; whether the queue is inside or outside; or whether, if there is more than one ballot paper because we have a multiple election, as we often do, and people have one in their hand but not the other, they are to deny them that vote. It is not fair for the decision to be on the person in charge of that polling station.
I also do not think that it is fair that if you turn up at 10 o’clock in a nice, quiet area you can wander in—as sometimes one does in the Lobby here when there are not many on our side—but if you as an elector happen to turn up in a busy area, you will be discriminated against because other people will also have turned up late.
I had not heard of the government advice to turn up early. That is the reverse of what we had when I was young: it was called drinking-up time. We used to be allowed 10 minutes that way. That suggests that the Government want us all to be there at 10 minutes to the hour. We do risk assessments elsewhere, where we look at likelihood and impact. I think that the Government are right that the likelihood of this is low. Returning officers have realised that there are cameras and that they should not do that again. The likelihood may be low, but the impact will be high both on those going to the polling station—it is serious that they cannot vote—and on those watching on television people who have turned out to vote but who are not allowed to. We do not want that. I hope that the Government will think again about this.
The Parliamentary Under-Secretary of State, Home Office (Lord Taylor of Holbeach)
My Lords, I thought that I had had enough excitement for today, but this is an interesting debate. At first sight, everyone was positively affronted by the fact that people intending to vote found themselves in a queue and were unable to do so. At the previous election it was a disgrace. If I remember the press reports right, one of the queues was well over 100 people long. It was clearly a huge error on the part of the people responsible for organising the polling stations. Contrary to what has been implied, these were not people turning up at the last minute. The queues had formed during the day and existed for quite a lot of the evening. Those of us involved in elections will know that the peak time for voting tends to be between 5 pm and about 8 pm. If a queue has formed then—it can happen; I think that most of us will have seen that—one would hope it is not big enough to disadvantage voters who come along later. However, the size of the queues at the previous election—which were reported during the day—clearly impaired the ability of people to vote, and that is not a good thing.
I am going to disappoint noble Lords, particularly those on the Constitution Committee, because I know that my honourable friend Chloe Smith talked to them last Wednesday. The answers she gave them are very similar to the answers I am going to give. I hope that the House will forgive me. It may be that those answers are right. We have to think through a change of this nature and think of the consequences. The Constitution Committee, as the noble Lords, Lord Pannick and Lord Lexden, and the noble Baroness, Lady Jay, said, also supported this aim and obviously has given this matter a great deal of thought. It takes the view that this would give greater clarity. We need to write the discretion of the polling station clerk into law so that they can do that. I appreciate the sentiment behind the amendment, but we are not entirely sure that it would help to clarify the present arrangements.
While it might seem initially like a sensible response to the queueing at 9.40 pm, there is a real danger of creating unintended consequences and reducing the clarity and certainty of the law. As it stands, the law is very clear—a ballot paper cannot be issued after 10 pm. Elections are quite precise affairs. Votes are a matter of quite fine delineation and that is particularly true in local government elections. Although queues in local government elections are relatively rare, they were referred to in the Scottish local government elections. Returning officers, polling station clerks and voters know where they stand because it is enshrined in law. The present certainty around the time of close of poll and what close of poll actually means—no issuing of the ballot paper—also facilitates other aspects, for example, the requirement that exit polls cannot be published until the polls have closed. If the polls have not closed somewhere because there is a queue this makes it much more difficult for those responsible for public exit polls to be sure that anything they say may not influence a potential voter. It may sound pedantic but we are talking about something which requires precision. What would be the impact of this on the timing of results if a significant number of electors queued up? I do not think it is beyond the wit of certain people to have a bit of fun with this and to form a queue. It can be done and it might occur. There is also the risk that some people might use this as an opportunity to make a public statement about elections, particularly in areas where tensions exist.
It has been remarked that controlling and delineating a queue is quite difficult. Where is a queue? What is a queue? Most of us think that we know one when we see one, but not many of us would like to take responsibility for actually harnessing a queue, particularly without the power of a police officer. After all, the police officer is not acting under the instructions of the returning officer. A police officer would not wish to interfere with what constituted a queue, while those administering the election might be better off issuing ballot papers rather than trying to organise a queue. I am suggesting that there are factors of people control and definition that are important.
Lord Taylor of Holbeach
The noble Baroness makes an interesting suggestion. It is rather like the doorkeepers here keeping the doors open after eight minutes; in exactly the same way, it is quite difficult to close the doors. It is definable, though, and I accept what the noble Baroness says. It is easier to manage a building in which the writ of the polling clerks actually operates than perhaps a street scene, where it would be quite difficult for polling clerks to define to an individual person that they were outside the scope of the queue because they joined the queue after 10 pm. That is in effect what we are having to suggest, is it not?
Lord Tyler
I am grateful to my noble friend for what he has just said because it showed an openness of mind that I confess I have not previously witnessed from Ministers on this issue. I wonder if I could take this a step further: has he any evidence that every single presiding officer in every single polling station in the country did not take what I would regard as the common-sense view, when someone was standing there in the polling station ready to get a ballot paper when the clock struck 10 pm, and issue them with a ballot paper?
The Minister has referred to exit polls. I do not think that Parliament should worry too much about those who conduct exit polls. Those polls are taken only when people come out of the polling station, so frankly they are not relevant in the present circumstances to what we have been discussing. However, I am very encouraged by his openness of mind; perhaps with an appropriate tweak to this amendment, we might all make some progress.
Baroness Jay of Paddington
My Lords, before the Minister replies, I would like to add one sentence: one of the legal advisers to the Constitution Committee said that he thought it was beyond common sense to suggest that it was impossible for the parliamentary draftsmen to define a queue in terms that would be properly understood in an Act or a piece of law.
Lord Taylor of Holbeach
I do not know; I am not a parliamentary draftsman, but I would hesitate to define a queue that stopped existing at 10 pm so that part of the queue was within a queue and another part was in a non-queue.
I am interested in what the noble Lord said. I think that he has misunderstood the point about exit polls. They cannot be published until polls have closed, for fear that they might influence people who have not yet voted. Therefore, voters who are queuing up could be listening to the radio and getting an exit poll, and that could influence the outcome. I am sorry, but that is the very purist view about the publication of exit polls. This shows the importance of defining these matters quite strictly, because one thing about elections is that you do not want people saying, “It is not fair”. That is what noble Lords are saying about people who have been excluded from voting because they were not given the opportunity of getting a ballot paper and casting it. I accept that: it was not acceptable. I suggest, however, that the way to deal with it is to ensure that the resources to process voters are adequate to ensure that queuing is not a problem.
I am delighted that my noble friend thinks I have an openness of mind; I always have an openness of mind and think it is very important in politics to have one. However, that does not necessarily mean that I am going to be able to come back with a response that is more positive than that which I have given previously. Noble Lords should understand that. The definition that lies behind the current arrangements provides clarity for both voters and those responsible for managing electoral processes, without any ambiguity at all. The Government would not wish to put on the statute book a provision which is not only unclear—because, although the noble Baroness, Lady Jay, says that it should be possible to make it clear what a queue is, I think it would be quite difficult—but might also send a message that queues are acceptable; that as long as the resources are adequate, if there happens to be a queue formed, then it is perfectly all right. I do not believe that that is the case; I think that those responsible for organising elections should make adequate provision to process voters so that queues do not form. That is the right way to proceed.
Lord Norton of Louth
I am very interested in the issues for which the Minister is identifying the problems and unintended consequences. Does he have evidence that any of these have occurred in the cases where the practice already exists? I wonder whether the words “holes” and “digging” come to mind.
Lord Taylor of Holbeach
I was not aware that I was in a hole, but I may be. I do not know what the noble Lord is referring to. Is he referring to the Scottish experience, for example?
Lord Taylor of Holbeach
There is no experience there to suggest that there is any problem; the numbers involved are very small indeed. The noble Baroness—or possibly the noble Lord, Lord Pannick—talked about three voters. The note I have here says that possibly 10 voters may have been issued with a ballot paper after 10 pm under the more liberal regimes. This is nowhere near the scale of the 2010 general election situation here. I should say that in the United States, the majority of queues that form there are the result of mechanical voting and the breakdown of the technology used for voting. That is not the same sort of problem that we are talking about here.
I hope I have given noble Lords a run-down of the difficulties that Parliament would face if it chose to be more flexible in this area. I hope the noble Lord will feel free to withdraw his amendment.
Lord Pannick
I am very grateful to all noble Lords who have spoken in this interesting debate, not least to the Minister, despite his surprising failure to fulfil the expectation of the noble Baroness, Lady Hayter, and simply say yes to this amendment. The noble Lord recognised that at first sight, everyone would see the force of this amendment. I would hope that any reasonable observer would retain that opinion after considering the matter at length.
I cannot for my part see that the amendment would introduce any lack of clarity into this area of the law or that any minimal reduction in clarity should outweigh the fundamental right to vote. Concern about exit polls, deliberate queue forming and problems about what is a queue, all of which are factors to which the Minister referred, certainly demonstrate the noble Lord’s considerable debating skills. But whether these are realistic problems are matters on which I would take a different view. For my part, I would be very doubtful that a queue needs to be defined. I would be satisfied that a polling officer would be able to address any problem, not least with the assistance of any relevant guidance from the Electoral Commission and would know a queue when he or she saw one.
I will withdraw the amendment, not least because it would be inappropriate to vote on a 10 pm rule as the hour approaches 10 pm. There certainly would be no need for the doorkeepers to stand at the back of any queue were we to vote tonight. However, I say to the Minister that we will return to this matter on Report. I will carefully consider of course what he has said when I have read the debate. But at the moment I am wholly unconvinced by the arguments that he has put forward. I beg leave to withdraw the amendment.
Lord Tyler
My Lords, my noble friend Lord Norton of Louth is absolutely right to raise this issue in this context because the change to individual electoral registration provides a precise opportunity to think about this matter again. As he properly said, it already improves the situation and it is the right moment to be looking at this issue.
However, I confess that I am somewhat bemused. The most persuasive case for retaining the edited register has come from charities and credit agencies, both of which have a proper and natural interest that we should recognise. Theirs is a proper use of this data. It is rather unusual to hear a Conservative, of all people, apparently decrying that very proper interest of such organisations in accurate data of this sort.
It may be that the noble Lord, Lord Norton, is introducing a new idea, as he has done just now, by suggesting that some organisations of that sort should have access to the full register. That brings us to a very difficult problem of definition because under Amendment 56, he is apparently defining what a commercial purpose is. A credit agency would certainly be a commercial purpose. Is seeking to raise money for a charity not also a commercial purpose? I find it slightly bewitching at this time of night that a dedicated Conservative Peer appears to denigrate the idea of having a commercial purpose at all, as if it is somehow a disreputable activity. I therefore have a problem of definition under Amendment 56.
However, I return to my original point. It is perfectly right, proper and appropriate that we should ask the Government at this stage to be thinking about this matter. Amendment 57 is clearly the least objectionable option that the noble Lord has put forward, but I wonder whether, if electors had to opt into an edited register, many would do so and whether the whole exercise would become a wasteful bureaucratic nightmare. The opt-in option would, in that sense, be a red herring.
However, this is obviously the right moment to be asking Ministers to think again, and I hope that my noble friend on the Front Bench will do just that. If he is unable to make progress in persuading the Committee in one direction or another, perhaps this is a matter that we will have to return to on Report.
Lord Taylor of Holbeach
My Lords, I welcome that contribution from my noble friend Lord Tyler because he points to the fact that commercial activity is highly desired by this Government. We look for the growth agenda and when people are looking for a job, they perhaps think that that is a bigger principle than anything that my noble friend Lord Norton of Louth may have raised.
I should make it clear that, before 2002, the full register was available for purchase by commercial organisations. There was no opt-out and no edited version was available. The edited version was produced in order to protect individuals who did not want such purchases to happen, and that opt-out arrangement remains current and will continue through the change to individual voter registration.
There has been discussion with interested parties on this matter. This is not the Government making their mind up without having discussed these matters with commercial organisations and electoral organisers. The Government have decided, on balance, to retain the edited register and the current opt-out arrangements. However, were the edited register to be abolished, there would be strong pressure for increased access to the full electoral register, from which no one can opt out. The Government are concerned about the potential impact this could have on registration rates; if people did not want to be removed from this register by an opt-out, they may choose not to register at all. On balance, the Government believe that an edited register from which electors can choose to opt out is the right outcome. It is worth noting, as I said before, that before the creation of the edited register in 2002, the full electoral register, including everyone’s name, address and details, was available for purchase by any commercial or other organisation.
Amendment 56 is, as my noble friend Lord Norton of Louth says, a little by way of an “either/or”. It would prohibit the use of an edited edition of the electoral register for commercial purposes, and require the Secretary of State to define designated organisations. We are aware that some within the electoral community have argued that data collected for electoral purposes should not be used for commercial gain. On the other hand, I have presented the case for the use of the register as an aid to business and commerce. I hope that my noble friend will take that seriously. Others have argued that the edited register provides significant economic and social benefits. Crucially, anyone who does not wish their details to be used for commercial—or any other—purposes is able to opt out of the edited register.
Under IER, registration forms will also include a statement on the processing of the data supplied by the individual, including the uses of the registers. The Government are reviewing the name and description of the two versions of the electoral register to ensure that it is as clear as possible to registering voters what the circumstances are and to enable them to make a fully informed choice. Given this important safeguard, I see no reason to limit the uses to which the edited register can be put.
My noble friend’s Amendment 57 would remove the current opt-out arrangements for the edited version of the electoral register, in favour of an opt- in. The Government take the handling of personal information seriously and believe that providing electors with a choice to opt out, alongside sufficient information—of which I have given an indication to my noble friend—to allow the individual to make an informed choice, provides appropriate protection and control. Electors will also be familiar with the choice of an opt-out; this has been in operation for a decade now.
However, we believe that the current system, where most electors are asked to make a fresh choice each year about whether they wish to opt out, is unnecessary. We are therefore proposing that under IER an individual’s choice will be carried forward unless and until they inform their registration officer that they wish to make a new choice or they complete a new application to register. We also intend to make it as simple and straightforward as possible for electors to change their preference at any time.
I hope that noble Lords will believe that I have tried to give as positive a response as I can. We are sensitive to the issues which underlie my noble friend’s amendments, but I ask him to withdraw them.