Independent Complaints and Grievance Policy
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The Leader of the House of Commons (Andrea Leadsom)
I beg to move,
That this House endorses the recommendations of the Working Group on an Independent Complaints and Grievance Policy; and asks the House of Commons Commission to authorise House officials, reporting regularly to a steering group of Members and others, to undertake the work necessary to establish:
(1) a Behaviour Code for Parliament that covers bullying and harassment, and sexual harassment, and applies to all persons working for or with Parliament, or who are lawfully on the parliamentary estate;
(2) an independent complaints and grievance scheme to underpin the Code, together with associated policies, appropriate sanctions and the contractual arrangements necessary for delivering the scheme;
(3) particular procedures to deal with reports of sexual harassment, including the provision of a specialist Independent Sexual Violence Advocate;
(4) a system of training to support the Code;
(5) a human resources support service for staff employed by Members of Parliament or jointly by political parties, delivered by a third-party provider, and a handbook for these staff;
and to identify any amendments that may be necessary to Standing Orders and the Code of Conduct, for the approval of the House.
The working group was convened by the Prime Minister last November—supported by all party leaders—to address the serious allegations of abuse and harassment in Parliament. I announced the publication of the group’s report before the February recess, and I hope that Members have now had the time to consider the report’s recommendations in more detail.
We are all agreed that there is no place for harassment, abuse or misconduct in Parliament. We need to ensure that there are robust procedures in place so that everyone is able to work with the dignity and protection that they deserve. I believe the working group’s proposals do just that.
During its work, the group took extensive evidence, both in person and in writing, from a wide variety of stakeholders, including parliamentary officials, staff of MPs and peers, trade unions, academics, authorities on sexual violence, and legal professionals. The group also conducted its own survey, which was open to a wide range of people and included a number of passholders who had not previously been asked for their experience of bullying and harassment.
Many people have devoted a considerable amount of time to this work, and after more than 100 hours of discussion, consultation and consideration, I believe we have a set of proposals for the House to consider today that will fundamentally change the working culture in Parliament for the better.
I would like to turn now to these proposals, and I will briefly set them out for the House. They are as follows. First, Parliament will agree a shared behaviour code. This will apply to everyone on the estate, or engaged in parliamentary business regardless of location, and will underpin the new policy. It will make clear the expectations for the behaviour of everyone in the parliamentary community, and will be consulted on on that basis. Secondly, the new complaints and grievance procedure will be independent of political parties.
Thirdly, it was acknowledged that sexual harassment and sexual violence are different from other forms of inappropriate behaviour, such as bullying and intimidation. Therefore, separate procedures will be agreed for those looking to raise a complaint regarding sexual harassment and those with a complaint of bullying. This is an important distinction, and while everyone has acknowledged the significance of complaints of sexual harassment, evidence from staff made it clear that instances of intimidation and bullying are in fact more prevalent. Fourthly, therefore, MPs’ staff require proper human resources advice—something that has previously been lacking, and that will go a long way to helping prevent and resolve workplace grievances.
Importantly, the new system will be based on the principles of equality. It will be confidential and fair to all parties. It will be in line with the laws of natural justice, and it will command the confidence of all those who use it. The working group took advice at an early stage that, rather than reinventing the wheel, we should work with, and build on, the many sound processes and systems already in place.
Today, we are bringing forward a motion that will enable the House Commission to authorise House officials to take forward the group’s recommendations and implement our proposals in full. This is a big step towards creating a more professional environment and a Parliament that is among the best in the world in treating people with dignity and respect at work.
Caroline Lucas (Brighton, Pavilion) (Green)
I commend the Leader of the House for all her work on this important report. She will agree that Parliament should be a beacon of best practice, rather than running to play catch-up. Will she confirm that that means we need to make sure that these procedures relate to everybody on this estate? That includes, crucially, making sure that they extend to our constituency offices—to visitors to constituency offices—as soon as possible. I know we debated that in the group, but will she reassure us that this is a real priority for her going forward?
Andrea Leadsom
I certainly pay tribute to the hon. Lady, who was an assiduous contributor to all the work of the working group, and I thank her sincerely for her dedication to it. Of course, we recall the happy hours spent debating that very point, and we concluded in the end that it is a priority to ensure that the behaviour code—the protection—extends to all those who come into contact with Members of Parliament. But we concluded that, in the immediate future, we should focus on bedding in a new complaints procedure that will deal with the Palace of Westminster and our work as part of our parliamentary duties, and that once that is bedded down, we should have a review six months into its operation of how we should deal with others who come into contact with MPs, where there is that tricky grey area of where someone’s public life is and where someone’s private life is. I hope the hon. Lady is reassured by my once again making a commitment that we must look at that. She is exactly right.
Rachael Maskell (York Central) (Lab/Co-op)
I really appreciate the right hon. Lady giving way. On the definitions of bullying, why is the older version of the definition used, as opposed to the most recent version, which takes away the issue around intentionality? Often, perpetrators hide behind that.
Andrea Leadsom
The work on the detailed procedures, including definitions, will be finalised once the work of the House authorities gets under way to put these proposals in place. If the hon. Lady wants to propose a different definition, I will be very pleased to look at it, and I will certainly take into account all views in that regard. I am committed to ensuring that work proceeds at pace over the next few months, and I am pleased to report that the House authorities have already begun preliminary work on several of the workstreams needed to implement these policies.
Members will also want to know that the following four interim steps have already been taken to improve the services available. I have mentioned them previously, because we wanted to ensure that we had immediate steps following the serious allegations we all heard about in November. First, enhanced support arrangements have already been provided through the extension of the employee assistance programme helpline run by Health Assured. Secondly, face-to-face counselling sessions can be offered where appropriate. Thirdly, an interim service providing HR advice for Members’ staff was launched in January. Fourthly, political parties have all updated their behaviour codes and published them on the parliamentary intranet. This demonstrates that we have already taken urgent action, but of course the new procedures will go much further.
For the benefit of Members not present at my previous statement, I will turn briefly to the process for making a complaint or raising a grievance against a Member of this House. As colleagues will appreciate, the process for raising complaints against other members of the parliamentary community, such as peers, Members’ and peers’ staff, journalists and contractors will each differ according to their particular role. All procedures are designed for the protection of staff and parliamentarians alike and have fairness at their heart. It is intended that the House authorities will procure two independent services: one to consider allegations of sexual harassment and violence, and the other to consider workplace bullying and intimidation. Both avenues will provide support and, where needed, will investigate the complaint. Where informal resolution is not possible and the complaint is upheld, it will be referred to the Parliamentary Commissioner for Standards in the case of a Member of this House.
The working group proposes that the commissioner’s role will be expanded and reformed. She will have access to legal advice, and will be able to impose a new range of lower-level sanctions that may include a written apology, mandatory training or future behaviour agreements. The commissioner will be able to review any finding by the independent investigator, and where she does so she will ensure that her investigations are also strictly confidential, that both the complainant and the alleged perpetrator have access to all evidence, and, crucially, that each has the right to representation or to represent themselves. These measures will ensure fairness.
In the most serious cases, the commissioner will refer her findings to the Committee on Standards. The Committee can recommend to the House that an individual is suspended, and the House will vote on the recommendation. It is through this route that the existing procedures under the Recall of MPs Act 2015 could be invoked. The trigger for recall remains the same as it is now, and there is no plan for changes to primary legislation. The working group recognised the fact that those who work in this place are often in the media spotlight, and that vexatious and malicious complaints are a risk. The new procedures will therefore ensure checks and balances are in place to guard against such complaints, while making sure complainants can come forward in a safe and confidential manner.
I will turn now in more detail to the individual workstreams needed to implement the new procedures. We expect six major workstreams to be established, and I would like to address these individually. It is the intention that most of the workstreams will be completed in three months or less.
First, and very importantly, a new behaviour code for Parliament will be developed. This was a key recommendation of the working group report. It will ensure that we are all aware of and able to promote the highest standards that are expected in the parliamentary community. It will cover all those working in both Westminster and constituency offices, and all pass holders. With the approval of the House, we will consult on this new behaviour code: it is important that those who would be subject to the code have the opportunity to contribute to its development. The code must be something that binds us all. It will underpin the new scheme, which will be able to receive, investigate and resolve allegations of bullying, harassment and sexual harassment. It will also be the cornerstone of a cultural change to uphold dignity at work for all those who work with or for Parliament. It is our intention that the behaviour code will be brought forward within three months.
Secondly, there will be an implementation workstream around the bullying and harassment procedure. This will develop detailed policies and procedures, and commission the services of a new reporting helpline and a workplace dispute resolution service. The new helpline will signpost to available services, and ultimately the new services will be able to investigate independently allegations of bullying and intimidation. Dedicated emotional and practical support for all those involved in a complaint will be an important aspect of the new services.
Thirdly, there will be a separate workstream commissioning a new independent specialist service around sexual harassment and violence. A single point of ongoing support will be provided for complainants by an independent sexual violence adviser. Investigations of misconduct will be able to be conducted by an independent investigator with a specialist qualification in understanding sexual harassment.
Rachael Maskell
I thank the Leader of the House for being generous with her time. May I just caution her once again about the issue of mediation when it comes to bullying and sexual harassment, because of the inequalities of power? We want to ensure that there are clear processes that enable equality of power. Often, mediation has the reverse effect.
Andrea Leadsom
I hope I can reassure the hon. Lady that the issue she raises was at the core of all the evidence we took and all the discussions we had, and of the determination of the working group to address the issue of imbalance of power to make sure that the interest of the complainant is at the heart of the whole procedure, so it is very much complainant-led and ensures that people feel safe and are able to come forward in a safe space without the fear of being intimidated further. I think I can reassure the hon. Lady on that point, but of course I am very happy to speak to her separately if she wants further reassurance.
Fourthly, new training is already available to help people understand more clearly what types of behaviour might be considered bullying or harassment and the impact that this can have on individuals. This is the first step towards implementing the working group’s recommendation that the new independent grievance and complaints policy needs to be supported by a comprehensive training programme. Training will be a significant workstream and will also include learning opportunities for Members and their offices in their role as employers. The House authorities have also established a new induction programme for Members’ staff, with the first session being run this week in response to the working group’s request.
Other individual areas of work, including on the fifth workstream, are already under way. This includes work to prepare for a third party supplier of HR advice for Members’ staff to replace the interim service launched in January. This will be supported by a new Members’ staff book. A first draft has already been compiled by the Independent Parliamentary Standards Authority and the House authorities.
Finally, the working group has been clear that in order to implement a number of the group’s proposals, the sixth workstream will develop the remit and processes of the Parliamentary Commissioners and the Standards Committees in both Houses. This workstream will necessarily involve separate but parallel processes in both Houses, liaising with each other as necessary. At the end of these processes, changes will also be likely to be needed to the existing parliamentary codes, not least to reflect the new behaviour code.
Regarding the amendment on the Order Paper, I welcome its clarity. I assure right hon. and hon. Members that as well as having recently met the new Parliamentary Commissioner for Standards and having recently scheduled a meeting with the Standards Committee, I can absolutely give the assurance that consultation with the commissioners and the Standards Committees will continue and will form a key part of the next stage of our work.
It is important that the development of these workstreams is underpinned by fairness, confidentiality and a recognition of the unique environment in which these procedures are being implemented. The new arrangements must therefore be monitored, reviewed and embedded as part of a wider change in culture. I would like to pay particular tribute in this regard to the Political and Constitutional Affairs Committee for its excellent recommendations to the working group. Unfortunately, the Committee’s letter was omitted from the list of written submissions in annex B of the report—for that I apologise. One of the suggestions made in its submission was about the importance of review and scrutiny of the working group’s proposals. It is our intention that once the proposals have been implemented, a cross-House body or group should review the implementation and operation of the new processes, and in the meantime a steering group, whose membership will be based on the composition of the working group, will oversee the implementation period.
In conclusion, I am confident that the measures that the working group has recommended will provide the basis for the significant and sustainable change to which we all aspire: a Parliament that provides dignity at work for all. We need to make sure that our Parliament is among the best in the world, demonstrating our commitment to equality, justice and fairness. I hope that the House will endorse the working group’s recommendations today.
Jess Phillips (Birmingham, Yardley) (Lab)
I, like everybody else, want to commend the work that was done by the Leader of the House, the shadow Leader of the House and everybody else on the working group. One hundred hours—I would definitely have lost the will to live halfway through the negotiations. Everybody worked really, really hard.
The report has been done relatively quickly for this place; it is the quickest thing I have known go through since I have been here. There are just a few slight concerns I want to raise about how we might take this forward, but, by and large, the work that has been done is brilliant, particularly when there are often not easy answers to the anonymity and privacy issues. This is not easy; people outside this building can say these things are easy, but when you are actually here, it is quite different.
We talk about the events of last November and those being the reason we are all here. I want to say thank you to Ava Etemadzadeh, Jane Merrick, Bex Bailey and Kate Maltby, who all had the guts to come forward and say that people who were powerful had not always behaved the best with them. They deserve huge praise and merit.
I have concerns about the issue of representation during any process on sexual harassment. The Leader of the House said both parties would be entitled to representation, which is absolutely as it should be—and fair—in every system in the land, whether that is trade union representation or legal representation. However, I have a concern about how we will make sure in this place that there is equality of arms in that representation. If a caseworker is working in one of our offices, and a very wealthy peer, for example, sexually harasses them, I worry that one of those people has very good representation and can frighten people with legal letters—I have received some myself in these past few months. It worries me greatly that there will be an unfair imbalance. If the Weinstein issue teaches us anything, it is that rich men know how to use the law to get away with murder. We need to make sure that we address that all the way through this process
I also have one slight issue about the independence of MPs as decision makers. That is not in regard to them marking their own homework—I did not even know anything about the lay members until today, and I am satisfied with the explanations I have heard. However, in the report, one of the decision-making lines is that if a member of our staff perpetrates sexual harassment, bullying or harassment, we are one of the decision makers. I, as the employer, would the decision-maker. That seems completely acceptable—that is what it would be like in the outside world. As the right hon. Member for Forest of Dean (Mr Harper) put it, that is the same standard as that used for other employers. In this place, however, we are in close quarters with our employees. I employ only one person here and she is very, very close to me. I feel incredible loyalty to her. When I walk around this building, I see Members’ partners and children working here. I am not entirely sure that a Member of Parliament could be completely and utterly without bias in a case against a member of their staff, and that definitely needs to be looked into.
Andrea Leadsom
I hope to be able to reassure the hon. Lady, because we did come up against this issue. As she rightly says, there are some unusually close relationships in this place. Clearly, however, where there is a finding against somebody who is employed by a Member of Parliament, and the finding goes to that Member of Parliament and they fail to take action, the complainant will be able to take that Member of Parliament to the Parliamentary Commissioner for Standards for failing to fulfil their role as an employer. I hope that reassures the hon. Lady.
Jess Phillips
That does reassure me to some degree. My concern is that the complainant, as is always the case in such instances, has to do an awful lot of work. We need to make sure that they are supported all the way through the process. There is also the issue of equality of arms. As Members, we are much more powerful than most people and we are much more frightening than most people. [Interruption.] I am, that’s right! I would like to think that I can recognise that and employ it appropriately, but I still worry that there will be a power imbalance. The working group has done everything it possibly could do on a matter that is very difficult, and I imagine there were lots of voices on both sides. I will finish by just saying that I totally commend the report—
Andrea Leadsom
Today marks a positive step forward towards achieving a working environment that treats everyone with the dignity and respect they deserve when they come to work. Further work is needed, but I want to take this opportunity to thank all those who have helped us to get to this point. First, I want to thank all the members of the working group: the hon. Members for Walsall South (Valerie Vaz), for Brent Central (Dawn Butler), for Perth and North Perthshire (Pete Wishart), for East Dunbartonshire (Jo Swinson), for Brighton, Pavilion (Caroline Lucas), for Belfast South (Emma Little Pengelly) and for Dwyfor Meirionnydd (Liz Saville Roberts); my noble Friend Baroness Evans of Bowes Park and Lord Hope of Craighead; and our staff representatives, Max Freedman, Georgina Kester and Emily Cunningham. I thank them for all their commitment, dedication and perseverance over the past few months.
I should also like to thank the amazingly hard-working members of the secretariat: Nick Beech, Andrew Burrow, Christopher Clarke, Ian Hook, Justine How, Alix Langley, Helen Mott, Anna Murphy, Sophie Somervail and Kate Emms, as well as my own Leader’s Office team. Their help, support and advice have been invaluable, and I sincerely thank them for their drive and determination. I am grateful to all those who gave written or oral evidence to the group and to colleagues on both sides of the House and in the other place who have given their own thoughts and advice.
This Parliament must lead by example. It is a right, not a privilege, to be treated with dignity and respect at work. This place must set the best example of a workplace that protects and supports all those working in it, so I assure all those who have contributed and who care deeply, as I do, about changing the future for all who work here that I am 100% committed to seeing this through—no rowing back, no watering down and no delay. I hope that the House will support the motion.
Amendment agreed to.
Main Question, as amended, put and agreed to.
Resolved,
That this House endorses the recommendations of the Working Group on an Independent Complaints and Grievance Policy; and asks the House of Commons Commission to authorise House officials, reporting regularly to a steering group of Members and others in consultation with the Committee on Standards and the Parliamentary Commissioner for Standards, to undertake the work necessary to establish:
(1) a Behaviour Code for Parliament that covers bullying and harassment, and sexual harassment, and applies to all persons working for or with Parliament, or who are lawfully on the parliamentary estate;
(2) an independent complaints and grievance scheme to underpin the Code, together with associated policies, appropriate sanctions and the contractual arrangements necessary for delivering the scheme;
(3) particular procedures to deal with reports of sexual harassment, including the provision of a specialist Independent Sexual Violence Advocate;
(4) a system of training to support the Code;
(5) a human resources support service for staff employed by Members of Parliament or jointly by political parties, delivered by a third-party provider, and a handbook for these staff;
and to identify any amendments that may be necessary to Standing Orders and the Code of Conduct, for the approval of the House.