Building a Co-operative Union (Common Frameworks Scrutiny Committee Report)
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The Minister of State, Home Office and Ministry of Housing, Communities and Local Government (Lord Greenhalgh) (Con)
I thank noble Lords for their expert and learned comments in this debate. I particularly thank the noble Baroness, Lady Andrews, for moving this important Motion. I also pay tribute to her and other members of the Common Frameworks Scrutiny Committee, many of whom are here today. I appreciate their continued work to scrutinise UK common frameworks and, in particular, their excellent report, Common Frameworks: Building a Co-operative Union, which was published earlier this year.
The CFSC has added huge value to the wider common frameworks programme, and I thank its members for working so co-operatively with the Government over the past year. I am pleased to hear that it has been successful in its bid to continue its valuable work into 2022. The Government look forward to continuing to work with the committee in the coming months.
In response to the questions asked by the noble Baronesses, Lady Andrews and Lady Bryan of Partick, about who is responsible for this within the Government, I can be clear that my honourable friend Neil O’Brien has taken over this role in my new department, the Department for Levelling Up, Housing and Communities —“Deluck” is the appropriate way of pronouncing the department’s acronym, DLUHC. He is now the Minister for Levelling Up, The Union and Constitution. Of course that is now under the oversight and strategic responsibility of my right honourable friend Michael Gove, who leads the department. They will continue to be supported by the very excellent officials in the common frameworks directorate, who I know work closely with the committee.
Noble Lords will be aware that since 2017, the UK Government and devolved Administrations have been working jointly to develop the UK common frameworks. Common frameworks establish a common approach to policy areas previously governed by European Union law which intersect with areas of devolved competence. Central to every framework is the agreement between the UK Government and the devolved Administrations to work together to make better policy for citizens and businesses across the United Kingdom.
In the review of union capability published earlier this year, my noble friend Lord Dunlop set out that common frameworks prove that the United Kingdom Government and devolved Administrations
“can come together as partners in a common endeavour”.
It is that spirit of common endeavour that should ensure that frameworks maintain consistent rules and regulations for all across the United Kingdom. Furthermore, common frameworks should support citizens to make the most of the opportunities afforded to the UK following our exit from the European Union, and allow trading partners peace of mind.
Common frameworks have previously been described by the Common Frameworks Scrutiny Committee as representing
“an example of best practice for positive cooperation across the UK and have an important role to play in an evolving devolution settlement and in strengthening the Union”.
The UK Government consider strengthening the union as a key priority, as noble Lords will know. One of the central objectives of the newly formed Department for Levelling Up, Housing and Communities is to level up our towns and cities across the United Kingdom. The common frameworks programme has remained focused on upholding this by continuing to strengthen relations between the UK Government and devolved Administrations. The noble Baroness, Lady Andrews, rightly said in her article in PoliticsHome that
“the collaborative process of common frameworks can be held up as a model to build a stronger and cooperative union”.
Representing joint and collaborative ways of working, common frameworks have been developed carefully, drawing on industry stakeholder expertise from across the United Kingdom to establish effective ways of working. Under guidance from constitutional teams in the UK Government and devolved Administrations, policy departments have ensured that they engage with those directly affected by a framework during its development.
As the noble Baroness, Lady Randerson, said, my honourable friend Chloe Smith set out previously that UK common frameworks are “ways of working” documents, as opposed to policy documents, so the nature of any stakeholder engagement may differ slightly from one framework to another. Common frameworks are also designed to be adaptable enough to endure as society, the regulatory environment, and the economy change. To enable such changes, the relevant Administrations will continue to review and monitor frameworks on a regular basis and engage with the relevant industry and parliamentary stakeholders as appropriate.
Of the 152 broad areas where powers returning from the EU have a devolved intersect, for 32 of these areas the UK Government and the devolved Administrations have agreed that it is necessary to develop a common framework. The remaining 120 policy areas where no framework has been deemed to be required will continue to be monitored, and new frameworks developed if the need arises. Decisions on whether frameworks are required have been made, and will continue to be made, in agreement with the devolved Administrations in line with the Joint Ministerial Committee (EU Negotiations) principles that have guided the frameworks programme.
The Government welcome the CFSC report Common Frameworks: Building a Cooperative Union, published in March and the important recommendations it sets out. My honourable friend Chloe Smith, in her former role as the Minister for the Constitution and Devolution, set out the Government’s response comprehensively to the Common Frameworks Scrutiny Committee in May, and I am very pleased to have had the opportunity to hear the committee’s thoughts in person today.
The CFSC has set out a number of recommendations regarding transparency with which the Government have either agreed or agreed in principle. The Government agree that transparency is a key priority for the programme, and I am happy to state that since the CFSC report was issued, four further provisional frameworks have been published to allow for parliamentary scrutiny and one full framework has been published following final ministerial clearances. The Government are keen to rapidly progress towards publishing the remaining frameworks, and at a quadrilateral meeting just prior to the UK ministerial reshuffle, the then Minister and her opposite numbers in the devolved Administrations agreed that on resolution of the remaining cross-cutting issues, Governments should progress towards sharing the remaining frameworks at pace with legislatures.
CFSC colleagues have mentioned the various cross-cutting issues, including the UK Internal Market Act and the Northern Ireland protocol, and the importance for all frameworks to clearly set out how they will interact, or be excluded from common frameworks. I agree that these are important issues, and I note that considerable work has been undertaken at pace to resolve such issues.
In recent months, work across the programme has continued at pace and with some notable successes, which demonstrate the continued value of working collaboratively across all four Administrations. As noble Lords will know, some of the greatest challenges in developing common frameworks have turned out to be the cross-cutting issues that affect many or all of the frameworks. These are: the ongoing review of intergovernmental relations; the Ireland-Northern Ireland protocol; the interaction between frameworks and trade deals and other international obligations; and the way in which common frameworks intersect with the UK Internal Market Act. In particular, fully understanding the implications of the latter two issues and how they should be addressed in common frameworks has been the subject of much work throughout 2021. Indeed, the CFSC report makes distinct recommendations on the importance of ensuring that the UK Government and the devolved Administrations agree a means of using powers within the UKIM Act to create exclusions in areas covered by a common framework.
I thank all noble Lords for their contributions today and will try as quickly as possible to respond to the many points raised. The noble Baronesses, Lady Andrews, Lady Randerson, Lady Crawley, and, indeed, Lady Wilcox of Newport, all raised the issue of transparency. Transparency across the common frameworks programme is a priority for the Government. It is for this reason that throughout the development of each framework, they undergo industry-specific stakeholder engagement and then later parliamentary scrutiny under the UK Government and devolved legislatures.
In response to the noble Baroness, Lady Randerson, I clarify that common frameworks are not developing policy itself; rather, they establish intergovernmental ways of working, which noble Lords will recognise may therefore require differing levels of engagement. Thus far, the Government have conducted early framework development stakeholder engagement across all frameworks, bar two lesser-developed frameworks, and expect to further engage with many of those stakeholders as frameworks are published, and as and when any significant developments take place.
In response to the noble Baroness, Lady Randerson, and my noble friend Lady Redfern, we agree that frameworks should be published upon receipt of appropriate ministerial clearances. Noble Lords will be aware that, as a four-nation programme, frameworks can be published only on joint agreement by all parties. As such, it would not be in keeping with the joint nature of the frameworks programme for the UK Government to publish anything unilaterally. To update noble Lords, prior to the recent ministerial reshuffle, Ministers from across the UK Government and devolved Administrations met and agreed to progress the frameworks programme at pace. Once the cross-cutting issues have been fully resolved, we will jointly publish the remaining frameworks.
The Government recognise the important role Parliament has in scrutinising UK common frameworks and welcome the CFSC recommendation that further scrutiny may be necessary once frameworks are implemented and future development takes place. It is important for me to clarify that, as frameworks cover a wide range of topic areas, each is being developed by a different UK government policy department jointly with its devolved Administration counterparts. As such, once a framework is fully implemented, any decision around future framework development, and therefore continued scrutiny, will be taken at departmental level.
In response to the noble Baroness, Lady Wilcox of Newport, the Government intend to share the remaining frameworks with the CFSC to enable parliamentary scrutiny by the end of 2021. I expect that those frameworks with lesser intersects and with various cross-cutting issues will be sent first. This will be possible once they have been agreed or amended, but I recognise the frustrations around the delayed publication of provisional frameworks. The rest will follow shortly afterwards.
The noble and learned Lord, Lord Hope of Craighead, raised two issues. Yes, there is an important role for the centre in co-ordinating things, but policy departments must also have a role, as they are the policy experts. In line with the recommendation that the Government should work closely with the devolved Administrations to develop a process for using these powers, government officials and their counterparts in the devolved Administrations are working closely to establish a process for making and evidencing such agreements. Ministers have also met to discuss progress and to chart a path forward. I also take this opportunity to extend my thanks to those in the devolved Administrations who have made great contributions to this work.
A number of noble Lords raised the Northern Ireland protocol; namely, the noble Baronesses, Lady Ritchie of Downpatrick and Lady Andrews. I can provide an update on progress in certain areas, such as divergence. Common frameworks provide the right forum for discussions about how to best accommodate policy divergence in a way that works for the whole United Kingdom. Where proposals for divergence arise, the framework’s governance structures will ensure that views from all parties to the framework are taken into consideration.
In response to the noble Baroness, Lady Crawley, on reporting, the Government welcome the CFSC report’s recommendation to include processes for reporting on divergence. Once implemented, the policy teams will review their common framework regularly to ensure that it is updated according to changes made to any of the cross-cutting issues that intersect with it, including the protocol. Departments will take over full ownership of the framework, which will involve monitoring and reviewing it periodically, and engaging with legislatures and stakeholders, including giving updates on any divergence that has occurred. The noble Baroness, Lady Andrews, asked a question on divergence, and I hope I have covered most of her points, as best as I can.
I reassure my noble friend Lord Dunlop that the recommendations in his review align with the Prime Minister’s ambitions to strengthen the working of the union. We do not see these recommendations as distinct workstreams and many coincided with our existing thinking. We have made progress in implementing the vast majority of the recommendations, in some areas delivering above and beyond the scope. We incorporated many of the recommendations into the intergovernmental relations review. As the Prime Minister said in his letter to the First Ministers and Deputy First Minister of Northern Ireland on 7 September, due to the
“hard work of ministers and officials”
in all four Administrations,
“we are now in a position to conclude”
the IGR and
“provide a new structure for … engagement”.
I will have to write to my noble friend on the specifics of transparency reporting.
In response to my noble friend Lady Redfern, the Government very much welcome the CFSC report’s recommendation to publish justifications for policy areas where it has been decided that no further action is required. In the coming weeks, we expect to publish the fourth iteration of the annual frameworks analysis, which will include an explanation for each policy area where a common framework is not currently required.
In response to the noble Baroness, Lady Bryan of Partick, the EU exit resulted in returning powers in 152 areas where devolution also intersects. No framework is required in many areas as we believe that there is a low risk of divergence. Obviously, we will continue to review that position.
On the specific point raised by my noble friend Lady McIntosh on the progress on the Defra framework, Defra has provisionally agreed all 14 of its frameworks and one has been published for transparency. Defra frameworks have the biggest number of cross-cutting issues which are being worked through. As she will appreciate, that is quite a job of work to do.
There is broad agreement in this House that UK common frameworks are a helpful way to ensure the continued joint working across the United Kingdom by this Government and the devolved Administrations for the benefit of our businesses and, above all, our citizens. I look forward to continuing to work with this House and the noble Lords of the CFSC as we continue to deliver the common frameworks programme.