Lord Foulkes of Cumnock
That is true; we are giving him an impossible task. I hope that the noble Lord is not blaming me for this. This is all part of the Bill. Even the noble Lord, Lord Wallace, will have some difficulty explaining this. I was going to say he is just the Bill’s representative on Earth, but he is just the representative in this place of the Bill’s real architect. We know who is to blame.
Lord Wallace of Saltaire (LD)
My Lords, I hesitate again to interrupt the noble Lord in his wonderfully nostalgic speech ranging across the entire United Kingdom. I do not have a copy of the Labour Party’s manifesto for the last election with me but I think it committed the Labour Party to a recall Bill. I am sure that the noble Lord, as a good, strong, Labour loyalist, stands 100% behind that. Does he?
Lord Norton of Louth (Con)
My Lords, I rise briefly to support the amendment, which should be read in conjunction with Amendment 39 in the name of the noble Lord, Lord Foulkes. It strikes me that the problem is that there are too few signing places but they are open for too long a time. If the period is shortened, that would presumably free up resources that might help to cover the cost of having more places open within a short period. If the two were put together, it could be cost-neutral but very beneficial to all those who want to take part in the process.
Lord Wallace of Saltaire
My Lords, the noble Lord, Lord Foulkes, managed to entertain us for more than an hour during the first day in Committee. I fear that he may be hoping to do the same on the second.
Lord Wallace of Saltaire
Absolutely, it was absolutely not—it was repetitive. This Bill has been considered by a number of committees. The Government’s proposals for “a maximum of 4” took on board the proposals of the Political and Constitutional Reform Committee in the other place. That is where this proposal comes from. I have listened with interest and I have been thinking about constituencies in which I have worked. Indeed, in the first by-election in which I worked, as a student, I recall that the constituency of Cambridgeshire had 103 villages and no towns. Without question, there was one very convenient place where everyone might gather to sign a petition, which was outside the constituency in the city of Cambridge. We recognise that that is part of the problem we have with constituencies and their boundaries.
When I was the candidate in Shipley, one of my duties was to hold a house meeting in a place where it was a considerable surprise to those who attended the meeting to discover that they were in the Shipley constituency. They thought that they lived in a different place. I am sure that there are also problems that others here have faced in their turn. Again, I stress that this issue has been considered at some length not only in the other place but by a number of committees. This has not been sprung on the House by a wicked Deputy Prime Minister, as the noble Lord, Lord Foulkes, would like us all to believe. I am sure that he has looked at the committee report in some detail. It has been suggested that giving people an eight-week period will allow for a trade-off between those who wish to use postal votes and those who will take the opportunity to sign when they come into the centres in the constituency. That is the flexibility of the trade-off, and we will discuss further the question of whether the period should be of eight weeks or two.
I am conscious of the differences between constituencies in this country. We talked about what is called the Brecon and Radnor question in our earlier discussions, and I am certainly willing to look at whether there is an appetite for a degree more flexibility in all of this. As to the provision of premises, let me stress that traditionally the management of elections in this country is a local matter. It is in the hands of experienced members of local authorities, who look at the provision of appropriate premises. Perhaps I may say to the noble Lord, Lord Snape, that I think licensed premises are extremely unlikely to be used. As I listened to him, I wondered whether we would allow premises that sell liqueur chocolates to be used, since those of us who are also involved in the Deregulation Bill have struggled with that deep and vital matter.
Lord Wallace of Saltaire
Let us discuss it off the Floor of the House rather than detain the Committee further.
Of course, we will be relying on the discretion of the petition officers, who will be the local election officers, on the use of public premises around each constituency. I note the strength of feeling that has been expressed about four centres not being enough in a number of constituencies, although I also note the section of the Electoral Commission’s report which the noble Baroness, Lady Hayter, did not quote, which states that, equally, four signing locations may be more than is required in some constituencies. There is, perhaps, a greater degree of flexibility and I am willing to take this away and discuss whether a degree more flexibility is desirable.
Let me touch on a number of other issues that have been raised. The noble Lord, Lord Howarth, discussed the impact assessment. I can assure him that, under the Bill when passed, the costs of each recall process will be reimbursed to the local authority. The impact assessment covers the fact that the direct and indirect costs, including training, will be reimbursed.
Lord Howarth of Newport
Will the Minister write to us before Report with a detailed analysis of the costings that led the Government to come to the conclusion that they expressed in the impact assessment? It was:
“The cost attributed to one recall petition in the United Kingdom is estimated to be in the region of £55,000”.
It would be very helpful if he would explain how those costs are made up.
Lord Wallace of Saltaire
I will be happy to promise that we will reconsider that and I will write. Perhaps it is also worth talking at this point a little about regulations. A number of the amendments before us today consider how much should be in the Bill and how much should be in regulations. We have placed in the Library of the House a draft sketch of the regulations, but I should stress that it will not be possible to lay the regulations before either House between now and 7 May. The exact regulations will be the responsibility of the next Government and will come before the two Houses within the first year of the new Parliament.
Lord Forsyth of Drumlean
I am most grateful to my noble friend. If all this has been so carefully thought through, why are the Government not in a position to lay these regulations? I have listened carefully and I am grateful to him for saying that he will look at this again. However, while it is invidious to choose a particular constituency, if you take Argyll, which consists of a number of islands, the idea that this can be done for £55,000 is pie in the sky. Is the Minister basing the costing on discounting it over a long period? Where did the figure come from?
Lord Wallace of Saltaire
My Lords, since I have not looked in detail at the assessment, I cannot directly answer that. I assure him that I will go back and get that. I am quite familiar with parts of the Argyll constituency; I recall the Daily Mail writing a bitterly critical article on MPs’ expenses the year before last, in which it attacked the current MP for Argyll, who is a friend of mine, for claiming overnight hotel expenses within his own constituency—which merely demonstrated that the Daily Mail had not looked at the atlas.
Lord Foulkes of Cumnock
This is a very serious matter. The Minister said that none of the regulations will be ready before this Parliament finishes. That means that it will be up to the next Government to lay these regulations before Parliament. I am expecting that there will be a different Government. How is it that he, and this Government, can bind a successor Government and Parliament to put these regulations before Parliament?
Lord Wallace of Saltaire
My Lords, I was not aware that I had said “none” of them. A sketch of the regulations—which I am sure that the noble Lord has looked at—has been placed in the Library of the House, but the final form of the regulations have not been entirely agreed. As the noble Lord well knows—although he is looking in puzzlement at me—things like this have to be agreed closely through consultation with the Association of Electoral Administrators, the Electoral Commission and others. These things need to be done well and they take time, after one has agreed the overall shape of the Bill. That is the process through which we are now going.
Lord Howarth of Newport
The Minister says that these things take time and have to be done carefully, but it is some four years since the Government produced their draft Bill. What have they been doing?
Lord Wallace of Saltaire
My Lords, the Government have been fairly busy with a range of issues. We have perhaps taken longer on this than we should have done, and I note that the House is currently enjoying itself. The question of adequate training is, I suggest, a matter for regulations rather than for inclusion in Bill. I am happy to discuss that with the Opposition Front Bench between Committee and Report. Having said that we will discuss these issues further, I hope that the noble Baroness—
Lord Snape
With respect to the Minister, I am afraid that we are discussing the Bill because of discussions between the two Front Benches. They are the cause of the trouble in the first place. Therefore, I do not think the House will be too mollified by the thought of more such discussions taking place. Surely, if the Minister is going to reply properly to Amendment 66 in particular, he ought to be able to tell us how many staff he envisages at these particular places and what training—if any—they are going to get. What guarantees can he and the Government give about security, as far as people wishing to sign a petition are concerned, and what assurances will he be able to give the rest of us that people are signing only once? He has answered none of the questions relevant to Amendment 66. Whether or not the Government have had the regulations drafted after four years is their problem: the House is entitled to a slightly more comprehensive answer from the Minister than it has had so far.
Lord Wallace of Saltaire
My Lords, I have stressed several things. The details of premises used, and other arrangements, are matters for local election administrators. I have spent some time over the past three years talking to local election officers, and I have the highest respect for those whom I met, both in Yorkshire and in London. That is the way we manage elections; those people understand the local area, including its geography and the sort of premises that are the most valuable. Moreover, facilities for training are a matter for discussion between the Association of Electoral Administrators, the Electoral Commission and the Government. Those discussions have already begun and are well under way, but the final details await the completion of the Bill.
Lord Forsyth of Drumlean
Would it not have been sensible to have had the discussions with the local authorities about how this proposal could work in advance of drafting the primary legislation and in advance of this very late stage, when the Bill has been through the House of Commons and is in Committee in the House of Lords, and we are at the fag end of a Parliament? Surely, this is putting the cart before the horse, which is why the Minister—and I sympathise with him—is in the very embarrassing position of not being able to explain how, practically, this legislation can be made to work.
He is simply saying, “We are going to pass it on to other people and we will make regulations when we have had discussions with them”. But what happens if the other people who have experience in this area come to the same conclusion as every speaker in this debate who has represented a parliamentary constituency: namely, that this is not practical and doable? By that time, this will be an Act of Parliament. Surely it is our duty not to put rubbish on the statute book.
Lord Wallace of Saltaire
My Lords, the noble Lord is being a little mischievous. There have of course been extensive discussions with the Association of Electoral Administrators and others throughout on these matters. They have not come to a conclusion because the details will need to be worked out as we move forward. For example, this detailed amendment concerns the question of how many places one will have open for signing over an eight-week period. I have just offered to take that back and consider whether we could be a little more flexible. I have also explained that our proposals came as a response to a report from the Political and Constitutional Reform Committee, to which evidence was given by a number of these people—so we are not simply starting from the beginning. There has been quite extensive consultation, with which I am sure the noble Lord is familiar, and on that basis—
Lord Howarth of Newport
Does the Minister recollect that the Political and Constitutional Reform Committee advised the Government to drop the Bill?
Lord Wallace of Saltaire
My Lords, I do not recollect that. I recognise that all those in this House who have been MPs are deeply unhappy about the Bill. I also recognise that outside the Palace of Westminster there are many who would like the Bill to be a lot rougher and tougher than it is.
Lord Snape
The Minister will have to do a bit better than that. Outside the Houses of Parliament there are those who will not be satisfied until Members of Parliament live in a tent on the Thames and pay to come to work. He will have to find a slightly better argument than that to convince the House.
Lord Wallace of Saltaire
My Lords, as I walked down the main street in Saltaire on Saturday, I saw on the noticeboard outside the hairdresser a scribbled note that said, “Kill politicians, not trees”—we are currently culling some of the trees in Saltaire. I went in and had a minor altercation with the hairdresser about whether or not he would have been equally open to putting “policemen” or “Muslims” on his “Kill politicians” thing. It was a long altercation, and my wife did her best to calm me down. Let us recognise that we are in a situation in which politicians are not among the most popular or respected people in Britain, and the Bill is in part a response to that—and I stress that it was in the manifestos of the three political parties last time. Noble Lords do not like that response, but that is the situation which we are in.
Lord Snape
Having had the courage to say that to the hairdresser, did the Minister have the courage to stay for a haircut?
Lord Finkelstein (Con)
I have heard all these suggestions from various noble Lords that this is completely impossible and impractical. Perhaps my noble friend the Minister might reflect on the United States of America and whether in all the places that are very large—larger even than my noble friend’s former constituency—which have had these petitions, they have all collapsed due to it being completely impractical to organise them, or has it proven in fact that many recall petitions have taken place perfectly simply and not at great expense?
Lord Wallace of Saltaire
My Lords, the recall process takes place in a number of other democratic countries. It is an established part of democratic institutions in a number of other established democracies.
Baroness Hayter of Kentish Town
My Lords, the noble Lord, Lord Forsyth, asked whether we were putting the cart before the horse. At least now I understand the Bill that we gave a First Reading to earlier, which was about the control of horses, which I had failed to understand thus far.
It is interesting that everyone who has spoken in this very interesting and geographically spread debate has supported the amendment tabled by me and my noble friend Lord Kennedy. We now hope that we will enjoy the same degree of support for our other amendments and will look forward to it as we proceed.
My noble friend Lord Howarth pointed out, as I was about to do, that if the best evidence that the Minister could have was from the Political and Constitutional Reform Committee report in the other House, it was on the basis that this measure should not proceed at all, so the case for four days really has to be better than that. However, I shall not labour that point because the Minister has agreed to take it away and look at whether the provision should state “minimum” or whether we simply leave it to the petition officer, as the Electoral Commission says. We would be content with either as long as there was that increased flexibility.
I am not a former Member of the other place, so I do not come with any of that, but it seems to me that the provisions relating to how you develop the petition, how you set up signing places and the training of the staff will be crucial. As someone who has been a teller at polling stations, I will want to know whether I will be allowed in, how many feet away I will be able to be from someone going to the polling station and whether I will be able to ask where they live—which effectively gives me knowledge of who they are and therefore who they are voting for. These are big issues, and we will need the staff at the signing places to have absolute clarity on that when they are challenged about how close I might be able to go wearing my rosette or my “Vote No to Wallace” badge. Would we be treated as we are at general elections? I can find none of that, even in the draft regulations. Therefore, the training, its length and the type of staff are absolutely key, which is why we wanted it spelt out more.
I thank all those who have given their support to the amendment. I hope that we can look forward to the Government tabling their own amendment on Report. For the moment, I beg leave to withdraw the amendment.
Lord Foulkes of Cumnock
My Lords, I move this amendment with some concern and some disappointment, having heard the Minister’s response to the previous amendment. I would have thought that, if we were dealing with any of these amendments properly, the Minister might say in response to at least some of them, “The Opposition or the mover of the amendment from the Back Bench has made a good point. I’ll have a look at it. I’ll take it away. I’ll discuss it with colleagues and I’ll come back”.
Lord Wallace of Saltaire
My Lords, I hope that the noble Lord was listening to the response that I gave to the previous amendment, where I said precisely that.
Lord Foulkes of Cumnock
That was not what I took from it, but I am glad that he has confirmed that that is the case. I hope that we will hear the same kind of response to other amendments and that, when he comes back, we will see some changes, otherwise this would be a completely cosmetic exercise.
As I said earlier, the whole Bill seems to me to be a panic exercise. The Minister gave this away when he was talking about walking down the street in Saltaire and being incensed by the note that he saw in the barber’s window. The Bill seems to be a panic response to some of the comments made by people who write in the Daily Mail, the Daily Telegraph and even the Times from time to time. I am reminded of someone once asking, “Why are all the people best able to run the country either cutting hair or driving taxis?”, which seemed to me to be a very good question, but I added to that, “Why are all the people best able to run the country cutting hair, driving taxis or writing columns in newspapers?”. If these people know better than us how to run the country, if they can draft better legislation, if they can come with better ideas, why on earth do they not stand for Parliament?
Baroness Hayter of Kentish Town
There are two different issues here: making up your mind on the matter and the procedures involved. The questions I am asking the Minister are: why did the Government decide on this measure, and what is the appropriate period? Two weeks seems too short to get the whole thing set up and the registers ready. Indeed, we are talking about 12 weeks with a couple in between, given the eight weeks that have been mentioned, added on to a possible by-election lasting another four weeks.
I think that the noble Lord, Lord Finkelstein, now appreciates what my noble friend Lord Grocott said. The best thing would be to resign straightaway and call the by-election yourself, as the MP concerned, and go straight into a by-election, saying, “Yes, it is true that I have been kept out of the House of Commons for 10 days”—or whatever it is—“but that was because I felt very strongly about a matter; there was a Bill going through that I did not like”, or whatever the issue was. In that case, you are on the front foot. That is the point that my noble friend Lord Grocott was making. That would be a much more attractive proposition and might be the right way to tackle the matter—that is, by putting the MP in the control seat. Sadly, we have not discussed these issues fully and I do not think that the Government thought about adding the time for a by-election when they chose the eight-week period. They have some explaining to do about the choice of this period, particularly with regard to the discussions they have had with the electoral officers and the Electoral Commission on the eight-week period. We look forward to clarification on that.
Lord Wallace of Saltaire
This debate has ranged a great deal wider than the two amendments before us. I again remind the Committee that a commitment to bring forward a recall Bill was in the manifestos of all three parties in 2010. The draft Bill was published for pre-legislative scrutiny in 2011. The Political and Constitutional Reform Committee considered the proposed architecture and did not recommend changes, and it has also been approved by the other place.
I hear noble Lords around the Committee saying, “This is appalling. We have not thought of this before. This must be a last-minute proposal. Why has it not been thought through?”. This is not the case. We have consulted throughout, not with the Local Government Association, but with the society of chief executive officers and the Association of Electoral Administrators, the representative bodies for returning officers. They have not raised particularly difficult issues on this. I stress that the rationale for this measure was that the petition period would be parallel to, and part of, the process of discussion.
Lord Grocott
As the Minister is praying in aid the committee that gave the Bill pre-legislative scrutiny, he needs to put it on record that it recommended that the Bill should be dropped—I cannot remember another example of this happening—and that the Government should find alternative, sensible ways of using valuable parliamentary time. Can we have it on the record that that was the professional view of the specialist committee which looked at the Bill in its pre-legislative form? I cannot think of any other example of a Select Committee making a judgment of that sort.
Lord Wallace of Saltaire
I am fully prepared to accept that, but I also note that this Bill passed through the other place in spite of that recommendation. We need to at least start from that assumption when looking at the Bill rather than suggest that it has not been properly considered and ought to be entirely rejected, which I think is the undertone of a number of the contributions being made to this Committee stage debate.
Baroness Hayter of Kentish Town
Does the Minister accept that we on the Front Bench have endorsed the Bill and are trying to make it work?
Lord Wallace of Saltaire
I entirely accept that the Front-Benchers are committed to that and I wish that noble Lords elsewhere were. We have already, in effect, extended the process of elections. The fact that postal voting starts at a much earlier stage is a problem that we now all face in elections. Indeed, we have extended the period, in regulations that I have taken through the House over the past two years, rightly, between sending out postal votes and the election, in order to provide more time for people overseas, people who are going abroad on holiday, or whatever. So the process of elections has now been extended and we have the severe problem, as I felt working at the last election, that by the last week of the election a substantial number of the electorate have already voted. The conversation takes place early. The intention stated in putting the Bill forward for pre-legislative scrutiny was that the dialogue would take place as the petition was opened.
Lord Hughes of Woodside
I ask the Minister, since I am no longer involved in the question of postal voting, what is now the time between polling day and the granting of postal votes?
Lord Wallace of Saltaire
Since I have taken the regulations through I should know the answer to that, but I do not now recall it; I merely recall that we have extended the period.
Lord Hughes of Woodside
I am sorry, but the Minister just told us how he brought all this legislation through the House and now he cannot even remember what it was about.
Lord Wallace of Saltaire
I certainly remember what it is about. I do not remember the exact period. I think we have extended it from three weeks to four and a half or five, but I will write to the noble Lord about that.
On the question of the preparatory period, I note that these two issues are, of course, linked and that the noble Lord, Lord Foulkes, is proposing that there should be a longer time for preparation and a shorter time for signing the petition. I assume that he regards these as intrinsically linked to the provision of a larger number of places at which to sign, so that, in a sense, it all goes together as a package. The proposal which the Government have put forward in the Bill is that, since the electoral officers have not asked for a longer preparatory period than that suggested in the draft Bill and which is therefore provided for here, we therefore open the petition-signing process after 10 days. That gives a considerable period during which people who are on holiday can return, et cetera, in order to provide the maximum amount of time for a campaign which goes in parallel with the petition-signing process and gives the maximum amount of time for those who wish to sign the petition.
Lord Foulkes of Cumnock
I find it difficult to understand what the Minister is saying sometimes. Is he going to accept, if not my proposition, the proposition of the noble Lord, Lord Norton, that eight weeks to two weeks is linked to the number of polling places? Since he has taken away the number of polling places and will come back, is he also agreeing to take away the question of the eight-week period being reduced and look at that as well? I do not know whether he said that.
Lord Wallace of Saltaire
I did not say that. The other place has passed this legislation and I am not yet persuaded. The eight-week period ensures that there is enough time for electors to sign in a manner that is convenient for them. I am certainly prepared to raise the questions of how far we wish to go and the cost involved, but I doubt whether I can give the noble Lord the open suggestion at this late stage, four years after the draft Bill was published, that we will look again at something which has actually had very considerable consultation since it was proposed and has not received a negative comment from most of those who were consulted. On that basis, I ask the noble Lord to withdraw the amendment.
Lord Foulkes of Cumnock
I wish the noble Lord, Lord Gardiner, were here because I can understand what he is saying. I find it very difficult to understand what the Minister has just said. If I cannot make a case, the noble Lord, Lord Norton—Professor of Government at Hull University—made a perfect case. If the Minister is taking away the issue to look at the number of polling places, it surely goes without saying that the question of the time for which those places are open is linked to it, in terms of not just cost but the availability for people to sign. I am quite astonished that he is unable to consider this matter. To be honest, it shows that Ministers in the House of Lords need to be exceptional and say—like the noble Lord, Lord Newby, sometimes does—“I’ll have another look at that and will go back and argue with the Ministers in the House of Commons because a good argument has been made. Perhaps I can convince those Ministers that it should be taken account of”.
The Minister said, in a sort of gratuitous compliment to my noble friend on the Front Bench, that of course the Government think that the Opposition Front Bench is trying to improve the Bill. The implication is that none of us on the Back Benches is trying to improve the Bill, but this is genuinely an attempt to do so. The compadre of the noble Lord, Lord Finkelstein—the Sancho Panza to Don Quixote over there—was shaking his head. If Sancho Panza reads the Second Reading debate, he will find again and again that Back-Bench Members on this side of the House said, “We agree with the principle of recall but do not agree with a number of the provisions of the Bill”. We are trying what one might call a twin-track approach. We are saying, “We don’t like this Bill at all; it is badly drafted and thought out. But it is there and we will do our best to try to improve it”. That is what we have been genuinely trying to do with these amendments—on the Back Benches as well as on the Front Benches.
I have been listening carefully to the Minister’s reply for a reason why the period should be eight weeks. Why not seven, six, 10 or 12 weeks? There was no explanation whatever as to why eight weeks has been arrived at. If the amendment is tabled again on Report, I would be minded to test the opinion of the House.
I am really disappointed in the response from the Front Bench. In future, perhaps on my next amendment, I shall encourage someone else to move it to see whether they have any greater ability to convince the Minister of the argument. I feel totally inadequate in my ability to argue a case.
Lord Soley (Lab)
My Lords, I share the concerns expressed. The Government need to think long and hard about the privacy issue. If this Bill had been put before the House in the 1970s or 1980s, there would have had to be a clause making it clear that it did not apply to Northern Ireland. Fortunately, I think we are over the worst of that but, as the Minister knows, it is still a sensitive area and I am not sure whether this will apply to Northern Ireland. I must admit that I meant to check that point but I did not. I also think that there could be real problems as regards the privacy issue in areas where there are ethnic or religious tensions. I am not sure what thinking the Government have had about that.
In view of all the battles, literally, over the centuries to get the secret vote, you can see why people might be worried about signing a petition in public or, worse still, signing without realising that it would be made public after the event. At that stage, people may want to take their name off the petition, to change their mind or whatever. I do not have any confident feeling that the Government have thought this part through. I look forward to the Minister explaining how he will deal with this, particularly in those areas where there are tensions and as regards expecting people to sign a petition but not to change their mind later and desperately try to get their name off.
Lord Wallace of Saltaire
My Lords, I recognise that this is a very important point. The Government take on board that they have not entirely spelled out the degree of secrecy and publicity that comes with this. Unavoidably, signing a petition is, to some extent, a public act. We all know that someone going into a polling station often can be observed and checked, although those who make postal votes preserve a great deal more anonymity. The mere fact of going to the signing place to sign the petition clearly indicates in which direction you are moving, which makes this unavoidably a less secret activity than the secret ballot.
We recognise that the balance between the public nature of signing a petition and the need to preserve a degree of privacy for those who wish to sign it is one on which we have to give particular care and attention to strike the right balance. On attending the signing place, the elector will have their entry checked on the electoral register to check that they are eligible to sign the petition. They can then be handed a signing sheet and will be able to read the information et cetera. In Northern Ireland, electors will have to produce ID according to the existing arrangements for elections in that country, as the noble Lord, Lord Soley, will recall.
Postal signing raises questions about access to the marked register, which will tell you who has and who has not signed the petition. The Government are considering what limitations there should be on access to the marked register. While some of this will have to be left to regulations, I will do my best to come back on Report with a clearer statement on the marked register issue in particular.
We are all of course concerned about intimidation. As the noble Lord, Lord Soley, remarked, it is not purely limited to Northern Ireland. We are all aware of some other areas in the United Kingdom where that has happened or might easily happen. Therefore, when there is only one way in which you are likely to express your opinion in signing a petition, the question of intimidation, as well as privacy, should be fully addressed. Some of that will have to be left to the details of the regulations but I will do my utmost to come back on Report stage with as clear a statement as possible of the Government’s view, taken in consultation with the appropriate authorities.
Lord Soley
Will the Minister also tell us whether he has taken or will take advice from the law officers? What would the situation be if someone who suffered harassment or worse as a result of their name being made public when they did not expect it to be took a legal action, whether in the UK or in the European court, under their right to privacy?
Lord Wallace of Saltaire
I will certainly take action on that. The question of how far the right to privacy extends in this thing is something on which I am not myself an expert. However, I will take advice.
Lord Soley
Perhaps I may draw attention to the fact that Clause 23 does actually extend to Northern Ireland. I ask the noble Lord to check that the Northern Ireland Secretary of State is aware of this, and whether she has any views on it.
Lord Wallace of Saltaire
My Lords, I understand that this is a serious matter which we need to get right. On that basis, I hope that the noble Baroness will be able to withdraw her opposition to the question that the clause stand part.
Lord Foulkes of Cumnock
I am still not very clear about how the petition will be signed or how a voter can indicate their support for it. What, for example, would be sent to me as a postal voter? I think that pairs are being excluded, so what would be sent?
Lord Wallace of Saltaire
My understanding is that the postal voter will be sent a form with the words as stated on the face of the Bill and will be invited to sign it or not to sign it. That would then go in and be submitted.
Lord Martin of Springburn (CB)
In all my experience of petitions, they are public documents. The other place is famous for petitions being laid before Parliament. This is a public record, but now we are discussing the introduction of an element of secrecy about it. The recall of a Member of Parliament is a very serious matter. We are working through a process to remove a democratically elected Member of Parliament and we are considering that some of the petitioners shall be secret. There is an old saying in the trade union movement: you should put your courage where your mouth is. Well, you should put your courage and signature in the one place as well. We are overturning a petition, a procedure which was in place before people had the vote—before we had suffrage. That is a very serious matter.
Lord Wallace of Saltaire
My Lords, I recognise that, but on the other hand the secrecy of the ballot is also a very serious matter. As I said earlier, it is a question of striking the right balance between the unavoidably public nature of a petition and the principle of the secrecy of the ballot. It is a matter that we will consider further and come back on.
Lord Hughes of Woodside
If there is a petition with only one question on it and you sign the petition, everyone must know how you have voted. The idea of secrecy is nonsense. If people sign the petition, it must be known that they have done so, and then we know how they will vote. Again, the idea of secrecy is a lot of nonsense and I have no idea what the Minister is talking about.
Lord Wallace of Saltaire
My Lords, the question of intimidation has been raised by the noble Lord, Lord Soley, and others, and that is a matter which we also have to take seriously. We will consider the issues. That is why balance comes into the question. The noble Lord, Lord Soley, and others have some sad experience of the problems of intimidation in issues like this. I have promised to take this back and I will do my utmost to return with a clearer statement of the Government’s view of how we can strike what is an extremely difficult balance, as the noble Lord, Lord Martin, and others have observed. On that basis, I hope that the noble Baroness will feel able to withdraw her opposition at this stage.
Lord Foulkes of Cumnock
The Minister has said that he is going to come back: will he tell us when he is going to come back and explain this to us?
Lord Wallace of Saltaire
I suspect that the noble Lord may be surprised if I am not here at Report: that was what I was referring to. I said, “Report stage”.
Lord Howarth of Newport
When the Minister replies, will he explain to the Committee why the Government have not, apparently, involved the Electoral Commission in this process? It is so obviously the organisation equipped and tasked to deal with matters of this sort and it is a mystery why it is not more fully involved here and in other aspects of the procedure. The commissioners are not normally shrinking violets. I even wonder whether the Electoral Commission, in taking the view that this is a thoroughly ill founded measure, has declined to play a part. I do not know, but in any event is it not really reckless to put the definitive wording of the petition in the Bill before it has ever been tried? If it turns out in practice to be inadequate, everybody will be in very great difficulty and primary legislation will be needed to change it.
Lord Wallace of Saltaire
My Lords, I hesitate to suggest that the noble Lord, Lord Howarth, has come to the debate a little less well prepared than he sometimes is. I have here the Electoral Commission’s briefing of 13 January for Committee, which does indeed remark on the consultations that it has had with the Government on the Bill. It says:
“Whilst the Commission has given informal advice on the current wording of the petition card and signing sheet based on our experience of testing referendum questions, we have not undertaken any user-testing of the wording. We understand that the Government plans”—
as has already been said—
“to user-test both the petition card and signing sheet with members of the public”.
It goes on to say:
“We are not persuaded that this amendment is necessary, given that the wording of the petition signing sheet can already be amended by regulations”.
The Electoral Commission has not been left out of the process, as one would naturally expect.
Lord Howarth of Newport
That is just what I said. It has been only informally consulted. I do not understand why it has not been given a formal role in this process.
Lord Wallace of Saltaire
My Lords, the Electoral Commission unavoidably has a formal role throughout this process and has been consulted throughout. Informal consultations are part of the formal process. We need not batter about words too much. I say to the noble Lord, Lord Hughes of Woodside, that an election or a petition process that generates such excitement would be a joy to many of us. Part of the pleasure, in a sense, of the Scottish referendum was that it did indeed generate a great deal of excitement.
It is the nature of a petition that a petition is one-sided. The noble Lord, Lord Martin, remarked that petitions are petitions—they are not elections. I hesitate to suggest that some wish to turn the recall petition process itself into the by-election that may or may not follow.
I will speak first to government Amendment 43, which would make a small change to the final sentence of the wording to appear on the petition signing sheet that is set out in Clause 9(4). The signing sheet must include this specified wording, as it explains to the eligible constituent that they are signing the petition for their MP to lose their seat and for a by-election to be held.
During debates in the other place, it was suggested that the wording could be improved in relation to explaining when a by-election would not take place. The Government agree and therefore this amendment responds to the debate in the other place by making it easier for the elector to understand that the MP will not lose his or her seat and a by-election will not be held if less than 10% of the registered electors in the constituency sign the petition.
The wording of the petition signing sheet was developed with input from the Electoral Commission before the Bill was introduced, but we have a power to amend the formulation in regulations if that proves necessary after undertaking user testing of the signing sheet and notice of petition with members of the public. In doing this, it will be possible to confirm whether the formulation that we have best serves constituents’ understanding. I repeat that the Electoral Commission was happy with the proposals as set out in the Bill.
Amendments 40 and 44 in the name of the noble Baroness, Lady Hayter, would remove the specified wording of the signing sheet from Clause 9 and replace the power to amend that wording through regulations with a power to set the wording in regulations following further consultation with the Electoral Commission and the Welsh Language Commissioner. The signing sheet must include wording specified in Clause 9, which explains to the eligible constituent that they are signing the petition for their MP to lose their seat and for a by-election thereafter to be held.
There is value in the appearance of the wording in the Bill, as it has allowed MPs to express their views on it. This mirrors the position for UK parliamentary elections, where the form of the ballot paper appears in primary legislation, the Representation of the People Act 1983, but may be amended through regulations that must be approved by a resolution of both Houses. No amendments were tabled in the other place to remove the wording outright, but an amendment was tabled to improve it, so I think we should be mindful of that when considering this issue.
A further modest but worthwhile advantage of the appearance of the signing sheet’s wording in the Bill is that future changes made to it would then be reflected in the text of the parent Act, which helps to make the law as clear as possible for petition administrators, parties and campaigners.
On consultation with the Welsh Language Commissioner, I can assure the Committee that the Government will prepare a Welsh translation of the wording in secondary legislation, as is the practice at other statutory polls, using a power and following a principle established in the Welsh Language Act 1993. This translation will be subject to user testing in the same way as the English version. I hope noble Lords are aware that, throughout this Bill, we are following as closely as possible comparable regulations and comparable legislation in other Acts concerned with our democratic process.
As is usual practice, we will consult the Electoral Commission’s Welsh language experts to ensure that the translation is accurate and will accommodate any changes identified through user testing. One of the amendments suggests that, in addition to consulting the Electoral Commission, the Minister should consult the Welsh Language Commissioner. The Welsh Language Commissioner has an important role in promoting and facilitating the use of the Welsh language, but it has not been standard practice at elections to consult the commissioner directly on Welsh translations of voter-facing forms and notices.
In summary, I believe that it is important that the wording of the petition appears on the Bill but that it is user tested and commented on to ensure that any improvements that are identified can be made. For these reasons, I hope that I have persuaded the noble Baroness not to press her amendments.
Lord Kennedy of Southwark
I asked the Minister who would do the testing if was not to be the commission. He has not answered that point.
Lord Wallace of Saltaire
My Lords, I apologise. I do not have that detailed information at my fingertips, but I will write to the noble Lord as soon as I can.
Lord Foulkes of Cumnock
Will the Minister make something clear? If it is in the Bill and the Bill is enacted, it is too late for the Electoral Commission to use a test and find out that it is not a good question, is it not?
Lord Wallace of Saltaire
My Lords, I am sure that the noble Lord was listening carefully. I apologise if I did not speak clearly enough for him to follow my argument. The process for the ballot form—and now for the petition form—is that it appears in the Bill so that MPs can reflect on it, but that it is open to amendment by regulation. In the Bill, we are following what already exists in the Representation of the People Act.
Lord Kennedy of Southwark
I thank the noble Lord for his response. I look forward to receiving his letter on the matter that I raised. At this stage, I beg leave to withdraw the amendment.
Lord Wallace of Saltaire
Lord Grocott
My Lords, the Government obviously do not want any change to the Bill at all, if they can achieve that, other than the amendments that the Minister himself has put down. However, I urge them to look at Amendment 56, if no other. We cannot simply treat this in isolation from all the other normal electoral practices of our democracy.
Lord Wallace of Saltaire
My Lords, I have said, I think three times now, that the Bill follows existing electoral law and regulation as closely as possible. We have not started off on something entirely new.
Lord Grocott
Can the Minister point to me anywhere in existing electoral law where, during a general election, for example, there is a running release of the state of the voting—after the postal vote had taken place, for example—and that is made known? Unless Amendment 56 is passed, that will be the likely situation in respect of these petitions. If the Minister disagrees, please intervene and tell me. I will stop speaking.
Lord Hughes of Woodside
I should make it clear that my amendment does not say that the names should be published but simply that the numbers should be published. The two issues are not therefore connected.
Lord Wallace of Saltaire
My Lords, I was sorry to hear my noble friend Lord Tyler talk about a holistic approach. I criticised the noble Lord, Lord Foulkes, the other week for using what I regard as a managerial phrase that was inappropriate for someone of his background.
Lord Wallace of Saltaire
The noble Lord has not yet used it since. I stress again that we are following the existing law and regulations as closely as we can, and not attempting to take through major electoral changes. The first two amendments in the group are, after all, an attempt to take through a major change, whereby 16 year-olds would be able to vote for a recall, even though they would not yet vote in the subsequent by-election. There are differing opinions among the three parties; indeed, there are differing opinions within the current coalition Government on this issue. This is not the place to address it. It is an issue on which we need to build consensus. I am personally in favour but as a government Minister I am not prepared to accept that we move towards it. We need to discuss the whole question of the franchise at some point in the not-too-distant future.
The amendment to allow a signatory to withdraw their signature also would introduce a major innovation. There is no precedent for returning officers withdrawing ballot papers on the request of electors who change their minds prior to the beginning of the counting of votes.
Lord Howarth of Newport
The noble Lord is talking about two entirely different situations. If one is voting in a conventional election, one is doing so at a single opportunity on one day, and of course one cannot scratch that vote once one has cast it. It is entirely different when there is an eight-week rolling period, during which campaigning is taking place. What argument does he have as to why people should not be allowed to be influenced by these campaigns?
Lord Wallace of Saltaire
My Lords, I have already said that we have now extended the period for postal voting. Indeed, postal votes may be delivered nearly three weeks before the election. If the principle in the amendment were to be accepted, the question would come up as to whether postal voters might be allowed to change their minds in the light of events they learnt about in the final two weeks of the campaign. That would be a major innovation also. With postal votes, we have slipped from a vote on one day to a vote that takes place over a period. Perhaps the noble Lord has not yet recognised that, but that is the position we are in and the current law is that when one votes one does not have a chance to change one’s mind.
Lord Foulkes of Cumnock
The Minister has already said he will look at the issue of whether the names will be public or secret. There is clearly not a parallel with an election, otherwise the names would all be secret. A petition is different from an election. He has to accept that. He accepts it in terms of public versus private; he ought to accept it in terms of whether the signature can be withdrawn.
Lord Wallace of Saltaire
My Lords, I am not persuaded by that. There are questions of intimidation regarding giving the name of someone who has already voted to the MP so that the MP can write and tell them not to. I can recall fighting a heavily Labour seat in the middle of Manchester in the 1970s, when Labour councillors were going round to voters saying, “I see you have a Liberal poster up. We have just checked the housing transfer list and you are on it. Are you sure that you want to keep it up?”. There are difficult questions here. I see no reason to change existing electoral regulations in this area.
Lord Hughes of Woodside
The Minister keeps saying that he is following general practice as far as possible. This is an entirely new practice. Will he please tell me where, either in my amendment or at any place in the Bill, it is stated that during the eight weeks when people vote the petition officer will make known the names of those people who have voted?
Lord Wallace of Saltaire
I will come to the noble Lord’s other amendment. I was talking about the amendment on the right to change one’s vote or attitude to the petition after one had voted. I will come to his amendment on disclosure of the number of signatories. The Bill—rightly, as he noted—does not specify whether a running total of the number of signatories should be published. That we intend to be a matter for the conduct regulations. As is the case at elections, petition officers and their staff will be bound by their official duty, and penalties will apply if information is released without proper authority. Again, I stand on regular practice. It is not allowed for those concerned with the conduct of elections—and, by extension, petitions—to release information of that sort. There will be many occasions on election day when releasing figures at one o’clock on how many people had voted would be helpful. That is not the case, and it is similarly not the case here.
Lord Forsyth of Drumlean
Is the Minister then saying, if we are following existing practice, that that would mean it is a secret ballot and nothing is disclosed, and that after the event a marked register may be available to show who has voted? That is the existing practice that applies to normal, conventional general elections. Will that be the position in this respect? It is no good saying that this is a matter for regulations; it is a very important point in terms of the operation of the Bill.
Lord Wallace of Saltaire
The noble Lord, sadly, was absent at his committee when we were discussing the question of secrecy. I am sure that he will enjoy reading the Hansard of the debate. We will come back to the issue on Report. We have been around the question of the problem of secrecy and I am not going to repeat our position for those who, unfortunately, were away.
Lord Forsyth of Drumlean
I am not asking my noble friend to repeat an earlier debate. What I am asking is very simple: when he says that it is the same procedure, does that mean that it is a secret ballot and that the names will not be made available to people? Yes or no?
Lord Wallace of Saltaire
My Lords, we spent some considerable time on this issue. When you sign a petition you do so with a clear aim. It is a complicated issue and I am happy to discuss it with the noble Lord off the Floor, but I do not wish to repeat all the arguments that we made at an earlier stage in a fairly extensive discussion.
The noble Baroness, Lady Hayter, and the noble Lord, Lord Kennedy, raised the offence of double signing. Clause 12 mirrors the offence of double voting in electoral law regarding the maximum penalties that apply on conviction: a person guilty of the offence is liable on summary conviction to a fine not exceeding level 5 on the standard scale, and so on. Again, we see no reason to change existing law and regulation for the petition, given that existing regulation is clear and is regularly applied. The Government are clear that convictions for electoral offences must result in the appropriate punishment to act as a deterrent for electoral fraud. We have seen courts deal robustly with proven, albeit isolated, instances of electoral fraud in recent years and the current offences framework has enabled significant penalties to be imposed where appropriate. That seems to us to be the basis on which the Bill should extend to the current petition process.
I hope that that provides constructive answers to those with amendments in this group. On that basis, I hope that the noble Lord is able to withdraw his amendment.
Lord Foulkes of Cumnock
My Lords, this has become a farce. Where it suits the Government’s aims they stick to electoral law; where it does not suit their purposes they go on to something completely new. We are wasting our time, the Government are wasting their time, it is making a farce of the whole debate and it is making the House of Lords look ridiculous. I hope that the noble Lord, Lord Wallace, will at some point recognise his part in that. I withdraw my amendment.
Lord Wallace of Saltaire
My Lords, Clause 10 provides for regulations to specify the detail of how constituents may sign by post or proxy. The detail about how postal and proxy signing will operate will be dealt with in regulations made under Clause 18. The noble Lord, Lord Foulkes, laughs. He accused me of not taking seriously his attempt to drive a change in the voting age into the Bill on the grounds that it made it a farce. I suggest—with the greatest respect, as he might say—that that was going considerably over the top.
The approach to regulations on postal voting mirrors that of UK parliamentary elections, where the rules for absent voting appear in secondary legislation. At an election, this is usually the 11th working day before the poll, which allows applications received in the days just before and up to the deadline to be processed and postal ballot packs issued to electors for them to complete and return in time for the close of the poll.
For a petition, it is possible to set a deadline during the petition-signing period itself. The last day of the period is, in effect, analogous to polling day at an election, so there needs to be a cut-off point. As noted in the memorandum prepared by the Cabinet Office and placed in the House Libraries before this debate, the Government accept that deadlines will need to be set within the eight-week period for absent vote applications to be made. In doing so, we recognise the additional need to check that the petition has not already been signed in person at the signing place, and to ensure that registers are properly updated to show that an absent vote application has been approved, thus guarding against the risk of double signing.
Lord Forsyth of Drumlean
Will the principle that my noble friend has enunciated—that we will follow the normal conventions on electoral law—be applied in this case? Therefore, as with postal votes, will the number of people who have voted by post be made public?
Lord Wallace of Saltaire
I need to confirm that, but I have no reason to assume that we will not follow normal and regular procedures, and that numbers—but, of course, not names—would be made public. At which point they would be made public is a question that I will also refer back to. I see the noble Lord’s mischievous argument, but I will make sure that we answer it.
Lord Forsyth of Drumlean
I must say to my noble friend that it is not mischievous. We are not being mischievous; we are trying to find out how this will work in practice and what the consequences are. If there is a large number of postal votes, that has implications, as the noble Lord, Lord Hughes, said. If it is to be made public, when in the campaign it is made public will have consequences for the Member concerned.
Lord Wallace of Saltaire
On the question of the deadline for the applications for postal votes, it is normal in an election for the numbers of postal votes cast to be announced after polls have closed.
Lord Kennedy of Southwark
In my contribution I talked about the code of conduct regarding postal voting that the Electoral Commission brokered to all the political parties. Of course, when it is a petition it is not postal voting; other campaigners can be involved. What does the Minister envision for a code of conduct for the campaigners?
Lord Wallace of Saltaire
That is a very good and detailed question on which I need to take some advice. I will ensure that I do so and I will write to the noble Lord. On that basis, I hope that he is able to withdraw his amendment.
Lord Kennedy of Southwark
I thank the noble Lord and at this stage I beg leave to withdraw the amendment.
Lord Wallace of Saltaire
“( ) The fourth condition is that, in a case in which the third recall condition was met in relation to the MP, the conviction in question is overturned on appeal.”