Coalition Government: Constitution Committee Report
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Lord Wallace of Saltaire (LD)
My Lords, this has been a serious and worthwhile debate. I pay tribute to the noble Baroness, Lady Jay, both for this report and for her chairmanship of the committee. I have had the nervous privilege of appearing before it on one or two occasions, and I have always been asked extremely sharp questions.
I must apologise to the House that the noble Baroness has not yet received a governmental response. We had hoped that it would be ready before this debate. I will take back to the Cabinet Office the strong views expressed in this debate, and I will do my utmost to ensure that we have it available for the next chance that the House will have to debate constitutional issues, which I think will be the last day of the Queen’s Speech debate. I may not be able to deliver on that—I am conscious that in government at present the number of people who have to agree something of this significance is rather larger than it would be in a single-party Government; that is of course part of the problem of coalition government—but I will do my best.
Since the committee published its report in February, the Political and Constitutional Reform Committee in the other place and the Institute for Government have both published reports on the final year of a fixed-term Parliament, which I have also read, as no doubt have many others who have contributed to this debate. The reports also provide some very useful information—in the Institute for Government’s case, resting on extensive interviews with civil servants—about what we may need to think about over the next 12 months, and indeed over the next few months, in order to prepare for the final months of this fixed-term Parliament.
There have been some elements of knockabout politics in this debate and certainly some elements of nostalgia for a firm two-party system; I also felt that there was such nostalgia in a great deal of evidence given to the committee. The rose-tinted spectacles that the noble Lord, Lord Donoughue, has for that classic golden age of British government of 1974-79 are fascinating. Some of us have seen that interesting play, “This House”, about the experience of the 1974-79 Government, and that is not quite the quality of government that I remember. Some of us will have our doubts on minority government reinforced by that experience and our commitment to stable coalition strengthened.
Much of the evidence to the committee—which I read with fascination on Sunday—suggested that coalition will prove to have been exceptional; that single-party government is purer and clearer than coalition; that voters can give only one Government a mandate; and that if no party gets a majority of seats, it will be cleaner and somehow more democratic for the largest party on its own to form a minority Government. The noble Lord, Lord Norton of Louth, got a little close to saying that in describing his attitude to mandate. Perhaps off the Floor of the House he and I might discuss the difference between the Burkean view of parliamentary democracy and the populist view of popular democracy in which a general election is in effect a referendum to choose among the manifestos of the parties. I am for a parliamentary democracy; and in the British constitution as conventionally understood, it is Parliament that chooses the Government, and the Government rest on maintaining a majority in Parliament.
As the noble Lords, Lord Lang and Lord Norton, said in the evidence, ours is an adversarial constitution based on the assumption that politics has to be based on the alternation in power of two mass parties contesting for power. As a number of noble Lords have also said, our constitution now has to adjust to the disappearance of mass parties and the splintering of popular loyalties. The latest public opinion polls, which your Lordships have all read in the past two or three days, show that the largest party is at 33.6% of the electorate. The second largest is at 31%, with two other parties at over 10%. There are some eight to nine different parties now represented in the House of Commons, depending on how one counts the Northern Ireland MPs. I note that the Prime Minister had a reception last week for the unionist MPs for Northern Ireland, which suggests that the potential for future government is being thought about in all sorts of ways. It is more likely that the diversity of parties will increase in the next Parliament, rather than decrease.
I note, from a discussion within the Labour Party and in the Guardian, the 35% strategy, and that Labour might perhaps hope to win a majority of seats on a third of the vote, or possibly even to form a minority Government on its own on the basis of 32% or 33% of the vote. There is a question of legitimacy here. I noted with great amusement in the 9 April evidence that the Deputy Prime Minister gave to the Constitution Committee that the noble and learned Lord, Lord Irvine of Lairg, asked him what he thought was wrong with an appointed second Chamber. He said that there was a question of legitimacy, to which the noble and learned Lord said, “Only legitimacy?”. Legitimacy is a problem for government.
With this coalition Government we have had four years of remarkably stable government. I recall all the predictions from the Labour Benches in this House and the other place, to start with, that it would not last a year. It is highly likely at the next election that the people will fail or refuse to elect a majoritarian House of Commons for a single party. That will face us with the choice of changing the people, as the Leninists would like to say, or agreeing to adapt the constitution. I think that it is quite clear that we will have to adapt the constitution, and this report helpfully suggests a number of ways in which we should adapt.
From my experience of coalition Government, however, there are a number of coalition practices that ought to be practices of good government for any Government. We have returned to collective responsibility. We have had more formal meetings. Sometimes I feel that one of the problems with coalition Government is that it takes infinitely more time. There have to be more meetings—of our side and their side as well as of the two of us together. However, it means that government decisions are in most cases rather better considered. As the noble Lord, Lord McConnell, said, coalition strengthens the careful consideration of policies and limits unconsidered ministerial initiatives.
I also read in some of the evidence given to the committee a suggestion that coalition weakens the Prime Minister and that what we want is a really strong, effective, executive Prime Minister. After the experience of Tony Blair as Prime Minister, I think that there is quite a strong case for saying that having an Executive who are more effectively constrained by Parliament and collective discussion among different parties are good things for good government.
The noble Lord, Lord Norton, made some odd remarks about inexperienced Ministers. My recollection is that after 13 years of a Labour Government, virtually no incoming Ministers in the current Government—Conservative or Liberal Democrat—had prior ministerial experience. The question of whether there should have been more training—the sort of work the Institute for Government is now offering—is one that we will all have to consider further.
The rose-tinted spectacles also touched on what the final years of single-party government were like. I remember the Major Government in 1996-97, with all the remarks about the “bastards” doing their best to stab the Prime Minister in the back. We all have memories of the last year of the Brown Government in 2009-10 and of the last year of the minority Labour Government in 1978-79. All demonstrated that each of our established major parties is itself a coalition—and sometimes an unstable and ill-tempered coalition at that.
A range of issues was raised in this excellent report. First, on the formation of a Government, I think we can all strongly agree that it may well need more than five days, that we would not wish to follow continental practice by allowing it to extend too far and that an agreement that it would be 12 days before Parliament meets probably sends the right signal for government formation. I think we also agree that we have moved some way towards the concept of a caretaker Government. That is also a good thing in the circumstances. The question was raised of how much information and advice would be given by civil servants. I can assure noble Lords that Civil Service support for government formation negotiations will again be offered.
I strongly agree—and I trust that my colleagues in government in the response will also strongly agree—that the Queen’s Speech offers the occasion for a vote to accept a coalition agreement, although the noble Lord, Lord McConnell, was quite correct to say that it is a good thing if both parties are seen to accept it. My party had a special conference, and I have heard a number of Conservatives quietly say that they wish they had done something like that to tie their party into what they were doing. That would also perhaps be good practice.
A lot of time in this debate and in the report was spent on the issue of collective responsibility. I have to say that I was surprised to hear the noble Baroness, Lady Jay, refer to “frequent” breaches of the doctrine of collective responsibility in this Government. Indeed, the noble Lord, Lord Crickhowell—if I heard him correctly—referred to the “abandonment” of collective responsibility. The Cabinet Manual says that collective responsibility should rest upon collective decision-making:
“Before a decision is made, ministers are given the opportunity to debate the issue, with a view to reaching an agreed position”.
That is quite clear: collective responsibility comes from collective decision-making.
There have been occasions in previous Governments when Prime Ministers have taken decisions without consulting their colleagues—occasionally even the Chancellor of the Exchequer—and I would argue that, with a limited number of exceptions, collective responsibility in this Government works extremely well. The write-round has become much more the ritual procedure, partly because one has to make sure that Liberal Democrat and Conservative Ministers agree on things. It even reaches down to my lowly level. My stress level rose considerably last week when I received four 100-page reports with requests for my views on them by the close of play the following day because they had to go up to separate Secretaries of State. However, that is collective decision-making which ties us all in.
The noble Lord, Lord Strathclyde, and others remarked that a lot of this is to do with trust and a willingness to compromise, and we all know that in any Government there will be some with whom it is easy to work on a trustful basis and others with whom it will be difficult. I remember being told by officials that in the 1974 to 1979 Government there were papers marked, “Do not show to Tony Benn”. There was a lack of trust within the coalition that was the Labour Party. On the whole, in any Government one can write down the rules but one needs to have a degree of give and take and a willingness to make it work that keeps the Government together. From my own limited experience within this Government, I have to say that it works pretty well. There are, of course, exceptions from time to time—trust does break down—but we are still here, and we will be here until May next year.
I think that the noble Baroness, Lady Jay, said that breaches of collective responsibility demonstrate the unsuitability of coalitions to the British system of government—although perhaps I misheard her on that. It seems to me that collective responsibility has had to adapt to coalition, and has adapted fairly well.
Baroness Jay of Paddington
What I said was that it lent some credibility to those who argue that the system of coalition Government was not as suited as others to our system of government.
Lord Wallace of Saltaire
As it happens, I visited Hughenden two weeks ago and bought and have since read the biography of Disraeli by the noble Lord, Lord Hurd. I have now discovered the very odd conditions under which he made the great statement that coalitions are not suitable to the British constitution. I think that we all now agree that the British constitution can adapt to a stable coalition Government.
The noble Lord, Lord Strathclyde, and others raised the question of the Lords. Much of the question of what we do with the Salisbury/Addison convention was discussed in the Joint Committee on Conventions in 2007. I agree strongly with what the noble Lord said in his evidence, and has said again tonight, that the conventions have adapted since then. The Lords conventionally does not vote against the Second Reading of any Bill, but we are willing to amend it. The idea of the mandate and the manifesto Bill was much easier in the 1940s and 1950s, when parties got 48% or 50% of the vote. When giving evidence to that Joint Committee, I went back to that 1945 Labour manifesto, which has a page that lists a series of Bills that the Labour Party wished to take through. I compared that with the 1997 Labour manifesto, in which I could find no single firm commitment of that sort. We have all changed our manifestos in that way.
I have some sympathy with the remarks of the noble Lord, Lord Strathclyde, on the numbers of Ministers in the Lords and their degree of seniority—and I have, of course, intense sympathy with his remarks on those who are not paid, but perhaps we will save that for another time.
The question of fixed-term Parliaments has also been raised. The question of how we handle the final year of such a Parliament is clearly one that we all need to address fairly rapidly. Some interesting comments have been made about the opportunity that the final year provides to think longer term and to prepare. One area in which I have some responsibility is the national security strategy, which should be prepared in the fifth year of a Government for publication early in the new term of the new Government. That is something that we should think actively about for some other areas as well. For example, we could all consider long-term spending trends within government and how far we cope with the inexorable rise in health costs and pensions, which we all know are coming down to us. There is a great deal there to discuss further.
On access to civil servants, I confirm that there will be no change in the long-standing principles set out in the Cabinet Manual and that guidance on pre-election contacts will be issued to civil servants nearer the time when contacts are due to commence, at the beginning of October.
The noble Lord, Lord Strathclyde, raised the question of whether we have to have a wash-up. As we have just discovered at the end of this Session, one can never predict until the end of the Session whether we will have agreed all Bills by the time the Session comes to an end. We may hope that we will agree everything by then, but we will have to see what happens when it comes to it.
Lastly, we have not talked very much about the role of the Civil Service. The role of the Civil Service in holding a coalition together is vital. I hope that the Constitution Committee will return to the role of the Civil Service in further inquiries. From my own experience of the high quality of officials and their remarkable tact and patience in managing the coalition Government, I have to say that we have been extremely well served. I have found the work of the special advisers for both parties absolutely invaluable. The distinction between their role and that of officials is also something to which the Constitution Committee might return.
I again apologise to noble Lords that they have not yet had the Government’s response to the report. I thank the committee very much for this invaluable report. It is a subject which we all need to think about as we approach the next election. The opinion polls will no doubt go up and down in various directions, but after the election we will have to face the question of how we form the next Government, whatever shape that may be.