Parliamentary Constituencies bill (First sitting)

(Limited Text - Ministerial Extracts only)

Committee stage & Committee Debate: 1st sitting: House of Commons
Thursday 18th June 2020 Public Bill Committees

[The Chair]

Before we begin, I have a few announcements. Please ensure your mobile devices are on silent. I allow you to bring in tea and coffee. I am not as strict as some other Chairs. You are welcome to keep refreshed during the proceedings. I call the Minister to move the programme motion in her name.

[The Minister of State, Cabinet Office (Chloe Smith)]

I beg to move,

That—

(1) the Committee shall (in addition to its first meeting at 11.30am on Thursday 18 June) meet—

(a) at 2.00pm on Thursday 18 June;

(b) at 9.25am and 2.00pm on Tuesday 23 June;

(c) at 11.30am and 2.00pm on Thursday 25 June;

(d) at 9.25am and 2.00pm on Tuesday 30 June;

(e) at 11.30am and 2.00pm on Thursday 2 July;

(2) the Committee shall hear oral evidence in accordance with the following Table:

TABLE

[The Chair]

The Minister is referring to a letter of 15 June. I assume everyone has received that.

Question put and agreed to.

Resolved,

That, subject to the discretion of the Chair, any written evidence received by the Committee shall be reported to the House for publication.—(Chloe Smith.)

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[The Chair]

Minister, we move to you for questions.

[The Minister of State, Cabinet Office (Chloe Smith)]

Q Thank you, Mr Paisley. I also thank you, Isabel and Tony, for joining us this morning. In my departmental role, I look forward to continuing the work between my officials and you and yours, doing the work of this legislation behind the scenes.

Could you talk us through what it consists of to conduct a review? Also, given that this legislation focuses on having equal and updated boundaries, perhaps you would be able to give us some insight into the importance of updating your work, including the fact that we have a slightly shortened review for the first of the series of actions that is outlined in the Bill.

Tony Bellringer: How a review operates is set out in the current legislation. Prior to this review, the legislation was most recently and substantively amended in 2011, when the rules by which we work were changed. Essentially, we gather the parliamentary electorate from across the United Kingdom. There is a statutory formula set out, which calculates the distribution of the House of Commons seats across the different parts of the UK.

There are four commissions—one for each part of the UK. Effectively, each of us then works independently. At the end of the day, we have to come up with a report that recommends to Parliament the prescribed number of seats for that part of the UK. Currently, they must be within plus or minus 5% of essentially a mean average electorate figure for the constituencies, the official term for which is the electoral quota.

We go through a process of iterative public consultation; that process is also prescribed in the legislation. We have an initial proposal stage. We work slightly differently to the local government commissions, in that we start off by coming up with a scheme with proposals, and then we publish those and consult on them, whereas the local government commissions tend to consult first and then come up with some ideas.

The initial consultation then produces a raft of responses; we receive very many responses. We then work through all of those responses; we do genuinely consider every single response that we get. And we look at what we may need to change from our initial proposals.

Currently, we are required to do something called secondary consultation, which is publication of all the responses to the first consultation that we receive. So, there are no new proposals in there; it is simply giving people an opportunity to comment on what other people have said.

We then look at all the responses to that secondary consultation as well and come up with a set of revised proposals, which we again publish and consult on for a period of time. We then look at those again, decide whether any final changes need to be made, and then we write up our final report and recommendations. Currently, those are submitted to the Government, who are then required both to lay that report before Parliament and translate it into a draft statutory instrument, which must be actively debated by both Houses. If it is approved, those constituencies will be used at the next general election.

As for the second question about the importance of conducting a review now, the constituencies that we currently have were the result, in England, of a review that concluded in late 2006; the order was made in 2007. Those constituencies were first used in the general election of 2010. However, the process that led to that report began in 2000. Therefore, the electorate data that your current constituencies are based on dates from 2000.

A review was commenced under the new legislation, to report in 2013, and as we know from the Bill, there was also one that was held in 2018 and reported in the same year. To date, neither of those reviews have resulted in a new set of constituencies, so your existing constituencies are very out of date. So the Government have come forward with this proposal to set aside the recommendations of the 2018 review and proceed very quickly to another review, largely working to the same rules established in 2011, but with a slightly truncated timetable that I believe would see us report in July 2023, with—I guess—the idea being that you would then have about 12 months before the expected next date of a general election.

[The Chair]

Q Isabel Drummond-Murray, do you want to say anything?

Isabel Drummond-Murray: I think that Tony has covered the legislative framework pretty well, so, no, there is nothing I would add to that.

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[The Chair]

Thank you. I will call the party leads first, and then I will take questions.

[Chloe Smith]

Q Good morning, Shereen. It is very good to have you with us; thank you very much indeed. I repeat to you the note of welcome that I sounded to your two predecessor witnesses. Mr Paisley, if I may, I put it absolutely clearly on the record, in response to something that Mr Efford hinted at, that boundary commissioners and their civil servants are independent of Government. I am absolutely clear that only in the most general sense do I say that civil servants work with them. There is nothing more to be read into that. For the sake of the record, the Boundary Commission for Wales is a non-departmental public body of the Cabinet Office. I make that clear at the outset.

Shereen, may I ask about how you hold public hearings? We have gone through some more general discussion with your two predecessor witnesses, so perhaps we might turn to this angle with you. As you will be aware, the legislation proposes moving the timing of one of the public hearings but maintains very firmly that there should be ample public consultation, which we think is really important for public accountability and public involvement. Perhaps you might give us some insight into how you manage that for Wales.

Shereen Williams: The challenge we have had in the past is that we have to pick the five areas in which to hold the public hearings quite early on, so we have to guess which areas might have the most challenge, in terms of proposed constituencies. It is hit and miss. Sometimes you could be there for two days, and you would have one full day of people turning up for the public hearings, and the next day there will be a much smaller number. It also uses up a lot of staff resources and the time of the commissioners.

The Bill proposes that that is done as part of the second round of consultation, which would give us a bit more flexibility on where we should physically choose to have these public hearings, based on the feedback and representations we get in the first round of consultation. For Wales, it is very important that we have an appropriate spread across the whole country, to make sure that people can get to a public hearing if they need to.

[Chloe Smith]

Thank you, Shereen. I will pause there and let other colleagues take over.

[Cat Smith]

Q Wales presents a unique geographical issue due to its large, sparsely populated areas with seats that have a much larger acreage. I am thinking of Brecon and Radnorshire, Montgomeryshire, Carmarthenshire —all those rural areas with very large seats. However, you also have the geography of the south Wales valleys, with each valley currently tending to have its own constituency. Given the population change in Wales over the past two decades from when the data was last used, coupled with the very tight 5% quota, the new review is likely to mean that there will be quite a lot of change in Wales. We will potentially see constituencies with more than one valley and a mountain range in between. Are there any geographical features, such as those valleys, that you consider a priority issue when it comes to drawing Welsh boundaries?

Shereen Williams: The challenge that we have in Wales is that whether we go with 600 seats or 650, Wales will take the biggest hit in terms of loss of constituencies. It would mean, I think, a massive change: across the whole country, I cannot guarantee that even seats that fit within the current limits will be able to remain intact. That is the challenge we have in Wales; the 5% does give a very tight range for us to work around.

I think the valleys will present a unique challenge for us, because you do not really want to split a valley and have half in one seat and the other half in another seat. It will require us to look at our building blocks and how we work on that, getting input from local communities and from local authorities—from our stakeholders—and asking, “If we had to go down the route of splitting a valley, what is the best combination to work?” I am aware that we had the exact same problem at the last review.

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[The Chair]

We will move to the Minister first, then to the main party spokespeople, and then Shaun Bailey is the first on my list for this section.

[Chloe Smith]

Q Thank you for joining us this morning, Eamonn. It is excellent to have you with us. Can you help us to understand some of the differences that apply to your work compared with that of the other boundary commissions? I am talking from the premise that we are extremely keen to bring about equal and updated constituencies that apply within and across all the nations of the United Kingdom, but it is a fact that in the pre-existing legislation, particular provisions are made for Northern Ireland. Would you be able to talk us through those and why you think they are important?

Eamonn McConville: Yes, Minister. Northern Ireland is obviously geographically the smallest part of the United Kingdom, so we literally have less room for manoeuvre when it comes to creating our modelling of the constituencies. That can be compounded by the effects of rounding during the calculations under rule 8, when it comes to allocating constituencies to each part of the UK.

That can leave us restricted in our ability to create the correct number of constituencies under rule 2. The legislation does currently, and I think the new legislation does prospectively, include a small degree of flexibility that allows us to fall beneath or outside of the plus or minus 5% tolerance from the electoral quota, but as I say, that is there because it recognises the mathematical conundrum that can sometimes present itself in Northern Ireland.

[Chloe Smith]

Q Thank you, Eamonn. May I also invite you to say a little about the way in which the parliamentary constituencies link to the Assembly seats, for the benefit of the Committee?

Eamonn McConville: The parliamentary constituencies create the boundary under which the Northern Ireland Assembly constituency areas are formed. They are further subdivided into five areas for the Northern Ireland Assembly elections. There is that coterminosity that does not exist, for example, in Scotland.

[The Chair]

For clarity, Eamonn, you said five areas, but do you not mean five seats in each constituency?

Eamonn McConville: Five seats, yes. Sorry, Chairman, that is exactly what I meant.