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The Parliamentary Secretary, Cabinet Office (Miss Chloe Smith)
I thank my hon. Friend the Member for Christchurch (Mr Chope) for securing the debate and all hon. Members for contributing to it so extensively. It will not surprise you, Mr Bayley, to hear that I will decline the offer that the hon. Member for Newcastle upon Tyne Central (Chi Onwurah) made at the end of her speech. That subject matter rightly belongs elsewhere, and she would expect me to do you no dishonour by going outside the scope of the debate. I want to address collective ministerial responsibility, as is correct, instead of other extraneous questions.
As I understand it, the central question among the many posed by my hon. Friend was about accountability for collective responsibility. I interpret that to mean that it falls to me today to explain the Government’s doctrine, and to articulate how the Government believe that it ought to be applied.
I shall start with the historical view, in brief. Collective ministerial responsibility has a long-standing place in the British constitution. As far as historians can tell, the doctrine came into being during the reign of George III, who had the perhaps rather dangerous habit of asking Ministers to come and see him individually to give him their views on important matters of state. I do not know whether he did that sitting on a sofa, or whether there were briefings later in the Red Lion. Who would know better than some Members in the Chamber where that style of government ends up, and what happens when senior Ministers cannot agree and go so far as to change their Prime Minister or Head of State without an election, which the hon. Member for Leyton and Wanstead (John Cryer) suggested was a very bad thing indeed? To return to George III, the Cabinet realised that the King’s actions were an attempt to undermine their unity and work out who his supporters were. They therefore agreed that they would tell him exactly the same thing, taking collective responsibility for their decisions.
Clearly, we have moved on a long way since then, in historical terms. Collective ministerial responsibility is about how Ministers behave towards the public and Parliament, rather than towards the Crown. However, the basic point remains the same: Ministers need to be able to have frank discussions and disagreements in private, while maintaining a common purpose once a decision has been taken.
It is to maintain the principle of collective ministerial responsibility that the ministerial code states that the Government will not normally disclose the level at which, or forum where, a decision was taken—my hon. Friend has sought to discuss that matter through parliamentary questions. If the code were not applied, it would be possible to work out which Ministers were present at a meeting. It would also open up debates about which decisions were accorded a higher or lower perceived level of importance than others. That would detract somewhat from the policy quality of issues that might be scrutinised in that way.
Collective ministerial responsibility does not abolish individual responsibility. Each Minister must decide for themselves whether they are happy to remain part of the Government and to support the Government’s decisions. There have been many cases of people feeling no longer able to stand behind the collective conclusion. Famous examples include the noble Lord Heseltine, who, when he was merely Michael Heseltine, famously walked out of Cabinet following the decision on the future of Westland, and the late Robin Cook, who resigned from Cabinet because he did not feel able to take collective responsibility for the decision to go to war in Iraq.
The current version of the ministerial code makes it clear that collective responsibility can be explicitly set aside on occasion. Even before the inclusion of that provision in the code, there was an established practice of doing so on specific issues. Most notably, it has long been the case that collective responsibility does not apply to issues of individual conscience. Most recently, there was a free vote of that kind on the Marriage (Same Sex Couples) Bill last week.
Mr Andrew Turner
Will the Minister take this opportunity to explain why we were not whipped on the major vote, but were whipped on such things as the business vote?
Miss Smith
I would be only too delighted to engage in that discussion with my hon. Friend, but as he knows, I no longer practise the dark arts carried out by what are known as the usual channels. I regret that I would not be able to do that decision justice; nor could I report back to those who make those decisions, if I even tried.
On the ministerial code, it is important to note that there is clear precedent, as has been said several times today, for suspending collective ministerial responsibility on specific issues, when the Government of the day decide that it is appropriate. A notable example, which we have discussed, is Harold Wilson’s decision on whether the UK should continue to be a member of the European Economic Community. He allowed members of his Cabinet to speak and campaign on both sides.
Let me offer the Chamber a few other historical examples. Shortly after the formation of the national Government in 1931, an “agreement to differ” was agreed. The terms of that were published in The Times in January 1932, and in February that year, the Home Secretary began a speech by commenting on the doctrine of collective responsibility:
“The House will have an opportunity…of discussing fully the departure from the doctrine of collective responsibility which is marked by my appearance at this Box this afternoon”—[Official Report, 4 February 1932; Vol. 261, c. 316.]
It is also helpful to note that in 1977, James Callaghan, the then Prime Minister, said:
“I certainly think that the doctrine should apply, except in cases where I announce that it does not.”—[Official Report, 16 June 1977; Vol. 933, c. 552.]
That demonstrates that the terms, duration and enforcement of the arrangement are ultimately a matter for the Prime Minister.
It is most important to add that the current Government have decided to set collective responsibility aside on some specific occasions. That is a fact of life in a coalition, and it shows how our constitutional practice can evolve to suit new situations.
Mr Chope
The Minister is talking a lot about the history, but can she explain why the Prime Minister was unable to give me a straight answer to my question, asking why he set aside collective ministerial responsibility in respect of the Electoral Registration and Administration Bill, and on what date that decision was taken? Why could the Prime Minister not let me have a straight answer on that?
Miss Smith
I wanted to go on to say, in addressing what I took to be my hon. Friend’s central point—accountability for the decision, when taken, to set aside collective ministerial responsibility—that the key is that Parliament certainly ought to be informed in a way that is appropriate to the instance in hand. I will not comment on whether the Prime Minister did or did not do that for the hon. Gentleman in parliamentary questions, but in the instance of the Lords amendments to the ERA Bill, my right hon. Friend the Leader of the House of Commons made such a statement to the House, explaining why he was speaking and how it was that collective responsibility had been set aside. I believe that the explanation has been offered in cases where such a departure has been outlined, and I think that that provides the kind of transparency and accountability that we are all seeking in this important area.
In conclusion, I note that the coalition agreement, in so far as it relates to the debate, sets out specific areas where the normal rule is not expected to apply. The citizens whom we all serve have had the chance to observe that in advance, and so hold us to account. Through that, there is no undermining of the coalition’s shared commitment to reducing the deficit and delivering a radical programme of reform that gets Britain back on track, after the catastrophic position in which it was left in 2010.
It has been possible in my short remarks to address only the notion of accountability for such decisions, but I want to finish by saying that it is vital that we are not distracted from our core task in Government at this time, which is to put right the mess that the Labour party made of Britain.
Hugh Bayley (in the Chair)
We now come to a half-hour Adjournment debate about engineering as a career choice for young people. It might be a courtesy to all hon. Members who want to listen to this debate if we wait just a minute or two for hon. Members who attended the previous debate to leave the room quietly.