Representation of the People (Electoral Registers Publication Date) Regulations 2020
(Limited Text - Ministerial Extracts only)
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The Minister of State, Cabinet Office (Lord True) (Con)
My Lords, on 9 June I announced to the House that, in the light of the Covid-19 pandemic, the Government intended to bring forward legislation to delay the deadline for publication of this year’s revised parliamentary and English local government registers by two months, from 1 December 2020 to 1 February 2021. As we all know, the electoral registers are lists compiled by electoral registration officers—EROs, in the jargon—of people in their areas who are registered to vote. EROs are appointed by local authorities across Britain and each holds two registers: a local government register for local polls and a parliamentary register for national polls, primarily parliamentary general and by-elections. Both registers are also used as an information source for credit reference agencies and in jury summons.
The annual canvass is an information-gathering exercise which ordinarily runs for five months, from 1 July to 1 December, and which EROs are obliged to conduct each year to ensure that their electoral registers are as complete and accurate as possible. The information gathered during the canvass is used to identify both electors who should be deleted from the registers, for reasons such as death, ineligibility or moving address, and eligible electors who are not on the register and therefore to whom invitations to register, or ITRs, should be sent. The ITRs are a separate form from the canvass and may be completed throughout the year, either digitally or in hard copy. The revised register is then published by EROs on or before 1 December, except when an election is held in an ERO’s area during the canvass period, in which case it is automatically delayed until the following 1 February.
This legislation would allow EROs an additional two months in which to conduct their vital work, if they require it, due to the challenges caused by Covid-19. For instance, in addition to the challenges all have faced, the members of electoral services teams in many local authorities have had to contend with reallocation to focus on providing other essential services in local communities. At present, however, EROs in England, Scotland and Wales remain legally obliged to publish the revised electoral register by 1 December 2020, or they will be potentially liable for prosecution for failure to conduct their statutory duties under the Representation of the People Act 1983.
As noble Lords will remember, we brought forward secondary legislation last autumn to make much-needed reforms to the annual canvass process, which were widely welcomed. The most significant change is a new data-matching step at the outset, informing the ERO which households are likely to remain unchanged. This allows the canvass to move away from the cumbersome, one-size-fits-all, paper-based system to a modern and adaptable model in which EROs are now able to use e-communication and phone calls to communicate with electors, as well as being able to continue to use hard copy where appropriate.
Thanks to those reforms, we have reduced the number of people who will need to respond to EROs at all; introduced digital contact methods in place of paper forms, reducing the amount of paper to be manually processed; and introduced the option to use phone contacts where possible, in place of door-knocking. This year’s annual canvass will allow EROs to conduct safer and more responsive canvasses than ever before. None the less, the canvass will still involve large amounts of paper responses and, where phone calls are impossible, door-knocking where a household has not responded to previous attempts to contact them. The in-person contacts and paper elements of the canvass still play a vital role in ensuring the completeness and accuracy of our electoral registers, as they allow those for whom local authorities do not hold phone or digital contact details to be canvassed.
In spite of the impact of Covid-19, the 2020 annual canvass under the reformed system is successfully and safely under way in local authorities across the country; I thank all those involved. The rollout of the national data-matching service successfully matched the records in all local authorities and valuation joint boards across Great Britain, amounting to over 48 million electors, an impressive feat considering the current disruption. This work has been undertaken with full compliance with all data protection regulations and while safeguarding the data of all citizens.
Before bringing forward this legislation, the Government engaged with the electoral services community to consider a range of options to support EROs. One of the alternative options raised was cancelling this year’s canvass and removing the in-person contact requirement—the door knocking. However, the canvass plays a vital role in ensuring the completeness and accuracy of registers on which elections are based. This includes those elections currently due to take place in May 2021, because of the deferment of elections. By cancelling the canvass, we would risk disfranchising voters who had recently reached voting age, moved house, or for some other reason should be added to the register. This would, of course, be unacceptable.
The other option, removing the in-person canvass requirement, has been proved unnecessary due to progress in the response to Covid-19 and the success so far in controlling its spread. Much of society has reopened and we have adapted to the new necessities of Covid-secure working, as we see around us every day. The extension of the publication date, in concert with clear and carefully considered public health guidance for canvassers, will allow EROs to undertake the canvass in full compliance with all Covid-secure requirements.
The Electoral Commission has, in close co-operation with the public health agencies in each of the three nations, already issued guidance to EROs on carrying out a Covid-secure canvass, and my officials are monitoring the situation to provide further non-legislative support as needed. These measures will, together, allow EROs the flexibility to respond to local needs while complying with the prevailing public health guidance. Not only would removing the personal canvass therefore be unnecessary to protect public health, and might risk undermining the quality of the register, it would be legally extremely difficult due to the statutory requirement to consult with the Electoral Commission for three months on any changes to the conduct of the canvass. Having considered the various options, we are bringing forward this legislation to allow EROs additional time to complete the canvass. However, they would still be able to publish before 1 February 2021 if they chose to, in line with current legislation.
The Government have consulted widely across the sector, including with the Electoral Commission, the Association of Electoral Administrators, the Scottish Assessors Association, the LGA—I declare an interest as vice-president of that association—and the Society of Local Authority Chief Executives, all of which have expressed their support for this measure. I thank my counterparts in Scotland and Wales, and their Governments, for their proactive and positive engagement on this issue. They have brought forward complementary legislation in their respective legislatures.
This legislation will provide the flexibility that EROs need to run a Covid-secure canvass, while safeguarding the completeness and accuracy of electoral registers. I hope and believe that these regulations are uncontentious and technical. They have the support of all major electoral stakeholders, of the Welsh and Scottish Governments and, I venture to hope, of your Lordships’ House. I beg to move.
Lord True (Con)
My Lords, I thank all those who have spoken with grace, in every sense of the word, for the kind reception to the regulations and the thoughtful contributions that have been made. Certainly, I will take up the point asked about by the noble Lords, Lord Tyler and Lord Kennedy. If I fail to answer any points in the time available, I will make sure that the House is informed.
The noble Lord, Lord Adonis, was the first to express his very understandable concern—which I and the Government share—about those who are hard to reach, including people in student accommodation and care homes. It is extremely important and the Government are concerned to make sure that the maximum number of people who should have the right to vote do have the right to vote.
I do not accept the implication of the remarks of the noble Lord, Lord Wallace of Saltaire, that there is a suspicion that the Government or the Conservatives wish to stop people registering in any way. That is entirely unfounded and I thought it a little aside from the general tone of the debate. Indeed, I explained to the House that the Government had declined to abandon the personal canvass—the door knocking—which was put forward as one of the things that we might do, because that is a way in which one can visit and get to people.
On automatic registration, which crept out in the remarks of the noble Lords, Lord Adonis, Lord Wallace, Lord Rennard, and others, I know that an amendment has been tabled for the discussions we will shortly have on the Parliamentary Constituencies Bill, when there will be more time to explore this topic than there is now. Some argue that automatic registration negates the need for a canvass at all. However, automatic registration, in the eyes of some, goes against the fundamental principle of individual electoral registration —of individuals taking ownership of registering to vote. Significant practical issues would need to be overcome. For example, there was reference to data matching. No single dataset has been identified that would allow an ERO to establish all aspects of eligibility to register to vote, in particular nationality. The Government are therefore opposed to the creation of a new database containing personal identifiers that has national coverage. Such a database would clearly pose a significant risk to data security, to pick up on my noble friend Lord Patten’s point.
My noble friend Lord Hayward raised Northern Ireland. He is right to say that the canvass in Northern Ireland is not an annual event like in Great Britain. Because of a different approach to voter identification it is undertaken only once every 10 years. That means that when the canvass takes place it is much more resource intensive than the annual canvass in the rest of the UK. Because of the very unique set of circumstances facing electoral staff in Northern Ireland, the Coronavirus Act delayed the canvass in Northern Ireland.
The noble Lord, Lord Kennedy, was kind to refer to my service in local government. I said in my opening remarks that one should at every opportunity express the profoundest thanks to the EROs and others engaged in this operation. They are the oil that makes democracy work.
The noble Lord, Lord Rennard, asked some questions about making people co-operate and the co-operation requirement. I agree that that is an important point. It is currently a legal requirement to include reference to a civil penalty on the ITR form and on the canvass form, but I think that the noble Lord was saying that that could be made more prominent. I will certainly take away that point. I accept that it should be on the form. I understand that it is in the form because co-operation is important.
We welcome the Select Committee report referred to by the noble Lord and my noble friend Lord Hayward. We will respond in due course.
I touched on canvass reform, which improves the way that EROs can canvass properties such as student accommodation and care homes. That has been welcomed by all across the electoral community. Officials are working to help facilitate relationships between EROs and care homes and student accommodation, which might include items such as better guidance. It is certainly extremely important that people in care homes should have the right to vote. I used to enjoy canvassing the care home at the bottom of my road because I rarely went away without a piece of cake. I thought that this was the reverse of treating, until I was told that the other slice was being saved for the Lib Dem candidate. I noticed that it was slightly bigger than the one given to me. Everybody of every age must have access to the vote.
My noble friend Lord Patten referred to algorithms. I will not follow on that. I come from the age when we learned logarithms at school. It is a dangerous area to go into, but I assure him that security is very important. We do not wish for more electoral delay. Indeed, the boundary review will be made against the pre-Covid March 2020 register to avoid further delay.
I hate disappointing the noble Lord, Lord Tyler. He is such an agreeable Member of your Lordships’ House and he constantly tells me that I disappoint him. I fear I might disappoint him again. He referred to the Electoral Commission. The Committee on Standards in Public Life is holding a review into the Electoral Commission. It is quite reasonable that political parties give their views on the topic. I do not think that it is an outrage. I am sure that Liberal Democrat Members will equally make comments and contributions to that review.
My noble friend Lord Hayward asked about flexibility. The purpose of this is very much flexibility. The Government do not expect everybody to now wait until 1 February 2021 if this can be done in the normal timescale, as it should. Some of that flexibility is to take account of the local lockdowns that the noble Lord, Lord Mann, referred to in his very interesting and informed remarks.
I hope that I have referred to most of the points that have been raised. If I have failed to do so I apologise to your Lordships here in person and I will repeat those apologies in the letter I will send to pick up any points that I failed to pick up in the debate.
I reiterate my thanks to all those involved in the election process. I certainly commit the Government to the position that we want the maximum number of people to exercise their vote in this country and to have the access to do it. My goodness, the sacrifices and battles that people made across the generations to secure the right to vote for every citizen mean that it is vital that it should be enjoyed. I hope that this modest measure to improve the canvass will assist in that objective. I look forward to further and perhaps longer discussions—I hope not too long—shortly on the Parliamentary Constituencies Bill. Indeed, as I have said to the House before, the Government are considering many aspects of the electoral system. Over this Session we will have many opportunities to engage on these important issues. I leave informed and improved by the many contributions today. I have not agreed with all of them, but I have agreed with very many of them. I am extremely grateful to those noble Lords who took part.