Parliamentary Works Sponsor Body (Abolition) Regulations 2022
(Limited Text - Ministerial Extracts only)
Read Full debate
The Lord Privy Seal (Lord True) (Con)
My Lords, these regulations were laid before the House on 22 November and, if agreed, will give legal effect to the decision of both Houses, taken in July of this year, to pass Motions endorsing the House commissions’ report for a revised mandate for the restoration and renewal programme.
Since the sponsor body was established by the Parliamentary Buildings (Restoration and Renewal) Act 2019, concerns have been raised about the conclusions reached in the initial assessment of the emerging costs and timescales. The House of Lords Commission, alongside the House of Commons Commission, expressed concern about the costs and timescales presented by the sponsor body, and I shared some of these concerns. That is why the Government, with the commissions in both Houses, have supported the development of a revised mandate. I am grateful for the collaborative way in which Speaker’s Counsel in the House of Commons has worked with officials in both Houses, including the deputy counsel to the Chairman of Committees, to draft these regulations and for the ongoing advice we have received from the R&R directors.
The new approach to the parliamentary building works will continue to ensure that, as provided for in the Parliamentary Buildings (Restoration and Renewal) Act 2019, Members of both Houses will be consulted. Peers and all those who work in this place will have a chance to express their views on the works. When making critical strategic choices relating to restoration and renewal, the R&R client board will keep in mind the principles agreed by both Houses to deliver a new value-for-money approach that prioritises safety.
The commissions, in a March 2022 meeting, agreed a new approach to the restoration and renewal programme, guided by the principles of prioritising health and safety, ensuring maximum value for money and integration with other critical works on the estate. It is important that all members of the parliamentary community feel that they are engaged on the parliamentary building works, and I am confident that these new arrangements will deliver the required step change in engagement.
In 2018, both Houses agreed that major works to the Palace of Westminster would be essential in order to ensure that this historic and iconic building remains for generations to come. It was decided that the project should be undertaken by a delivery authority and overseen by a sponsor body. The Parliamentary Building Works (Restoration and Renewal) Act 2019 set out the governance arrangements for the project by creating these bodies and conferring particular functions on them. However, earlier this year, the two House commissions recommended a new approach to the programme whereby a new two-tier in-house governance structure would be established.
These regulations, which are made under Section 10 of the Parliamentary Buildings (Restoration and Renewal) Act 2019, will abolish the sponsor body, which will be replaced with an in-house governance structure. The statutory responsibilities and other functions of the sponsor body will transfer to the corporate officers of the House of Commons and the House of Lords—in other words, the clerks of each House.
The Leader of the House of Commons and I have consulted the corporate officers and the commissions of both Houses, in accordance with Section 10(8)(a) of the Act, and both corporate officers have consented to the transfers to them effected by this instrument, in accordance with Section 10(3) of the Act. Ultimately, both corporate officers will have joint responsibility for the parliamentary building works and will, at least once a year, prepare and lay a report before Parliament about the carrying out of the parliamentary building works and the progress that has been made towards completion of those works.
I am aware that Peers have previously raised concerns that without the sponsor body in place, the project may not have sufficient expertise. First, the Houses will not lose the expertise gained by the sponsor body, and the team of staff with that expertise will be brought in-house, as a joint department, and be accountable to the corporate officers. I also emphasise that the delivery authority will not be affected by the regulations; its role is unchanged, although it will now be closer to the Houses. This ensures that the programme retains its valuable experience and expertise. These regulations will allow for greater co-ordination and engagement between the Houses and the delivery authority, which could in turn allow for the delivery of restoration works much sooner. Similarly, the regulations will not alter the role of the Parliamentary Works Estimates Commission; it will remain in place and will scrutinise the delivery authority’s estimates.
This statutory instrument is vital to ensuring that this historic building is restored, while making sure that we deliver for the British taxpayer. Our commitment to ensuring good value for money is reflected in Section 2(5) of the restoration and renewal Act, and it is an approach that I will prioritise.
I would like to reassure colleagues that the House’s important role in this project is not diminished by the regulations. Under Section 7 of the 2019 Act, no restoration works, other than preparatory works, can be carried out until Parliament has approved the delivery authority proposals for those works. In addition, further approval is required for any proposals that would significantly affect the design, timing or duration of the parliamentary building works. Bringing this project in-house is an opportunity, as an in-house governance structure should improve accountability and engagement with Parliament by allowing a close interaction with and accountability to the commissions of the two Houses. I beg to move.
Lord Best (CB)
My Lords, I thank the Lord Privy Seal for his opening remarks. Alongside the noble Lords, Lord Carter and Lord Deighton, and the noble Baroness, Lady Doocey, I am a member of the board of the restoration and renewal sponsor body, which is now to be abolished under the terms of this statutory instrument. We were charged with implementing the Parliamentary Buildings (Restoration and Renewal) Act 2019, and I have been acting as the spokesperson responsible for reporting to your Lordships’ House on behalf of the board.
Before we go, the board has bequeathed to its successors a synopsis of the lessons we have learned from our experience over the last two and a half years. Our letter to the chairs of the new client board and new programme board will be publicly available on Monday. Perhaps I can draw out that letter’s three interconnected conclusions. First, the governance structure devised by the R&R Act was flawed. The theory was that creating an autonomous arm’s-length sponsor body would mean freedom from political interference and would expedite swift progress after years of delay. This was naive. The reality was that the relevant parliamentarians retained a controlling role. The work of the sponsor body was constantly held back and confused by the views of parliamentarians, particularly those on the House of Commons Commission who were not committed to the large-scale R&R programme envisaged by the 2019 Act.
In particular, there was antipathy towards a full decant of the Palace. We believed this to be necessary if the essential works, most notably to sort out the horrendous underground labyrinth of pipes and cables in the basement, were to be carried out expeditiously and safely. Indeed, a decant was part of the legislative framework we were obliged to follow. Lack of agreement on this fundamental part of the R&R process high- lighted the inherent conflict built into the governance arrangements for a supposedly independent sponsor body.
Under the new arrangements, the work of the sponsor body, with its oversight of the delivery authority, is to be taken in-house, with its functions transferred to the corporate officers: the clerks of the two Houses. Hopefully, this means that an in-built source of disagreement and crossed wires will now be removed. Our successors will be able to act as a single, united client speaking with one voice in championing the programme and progressing the works—I hope.
However, this leads to a second conclusion. There has never been clarity on the budget, timescale or scope of the R&R exercise. That clarity is now needed if our successors are to avoid endless delays and a waste of public funds, with the delivery authority instructed to undertake unnecessary work. If there are maximum or minimum levels, for example of accessibility in the Palace or of its energy efficiency and sustainability, these need to be stipulated. If Parliament is never going to accept a total cost for the whole project of more than X pounds or a decant period of more than Y years, that needs to be crystal clear up front and as soon as possible.
Thirdly, and finally, the outgoing board accepts with the wisdom of hindsight that we should have recognised that the sudden changes to the country’s fortunes meant a course correction was inevitable. It is obvious in retrospect that when the Covid pandemic struck, followed by turmoil in the economy, a retreat from the measures envisaged by the 2019 Act was going to be called for. Our successors and our colleagues in the delivery authority need to be ready for changes of direction and be prepared for fresh thinking as external circumstances alter.
At the end of this frustrating experience, I remain of the view that, although it will cost a fortune and will need everyone to move out of the building for a prolonged period sooner or later, none the less, the restoration and renewal of Parliament is an incredibly worthwhile initiative. Research shows that the wider public hope for and expect a full refurbishment of this much-loved building. Investment in this great endeavour will support skills, crafts and businesses throughout the UK. A proper R&R programme would not only render the building safe from fire, asbestos, the breakdown of services, falling masonry and the rest but actually save money, and possibly save lives, over the years ahead.
However, I recognise the constraints for elected Members of Parliament. I do not face constituents who may well say, “While we’re struggling through a cost of living crisis, Parliament is spending billions on its own comfort”. Also, the dark cloud of moving out for several years to a less amenable base elsewhere colours everybody’s judgment. Nevertheless, although the process may have lost two or three years, I hope that our successors will have the courage and determination to see it through.
What has been achieved will provide a solid basis for the next stages. Most of the excellent staff in the sponsor body and the development authority will carry on, and their work to date, despite operating throughout the Covid pandemic and through times of political and economic turmoil, has produced a vast quantity of data and physical survey work that will now make possible a clear plan. This plan may mean a succession of more modest mini-programmes stretching into the indefinite future, rather than the single major programme that we pursued, but, if the big issue of the basement renewal can be sorted, all is not lost.
In concluding our work today, we all wish our successors well. We hope that, despite the failure of the 2019 Act, progress will now be made in restoring this internationally recognised and iconic Palace for which the nation is right to feel huge pride and affection.
Lord Collins of Highbury (Lab)
We clearly are. I am not saying that we are not. I was hoping to make the case that our responsibility is not limited simply to what we want for now. Our responsibility is to look to future generations as custodians of this place and not simply managers. Even more importantly, we talk about accountability, but I want to keep using the words “political buy-in”, because at every stage of this project we have to ensure that there is consensus and political buy-in. When we start making party-political points, we will fail.
When the noble Baroness, Lady Doocey, was Chair of the Finance Committee and I was a member of it, we had regular discussions about this. There is perhaps a wider assumption in the world outside that this building needs restoration and that we are planning a restoration programme, but this building is like the Forth Road Bridge: we have not stopped restoring it. We have spent hundreds of millions of pounds a year to restore the fabric of this building. The problem, as we all know, is that when this building was built by the Victorians it was full of shortcuts and making do. Since then, we too have been making shortcuts and making do, which has added to the problem. A lot of the difficulties we face are from periods when we have made this innovation here and developed something else there. The mechanical and engineering problems we face downstairs did not start with the Victorians; they have been going on since the place was built. How do we address that?
I agree that we can all be frustrated by decisions being made without proper consultation. When I was on the Finance Committee, what I found most frustrating was trying to pin down the people making the decisions and make them responsible for those decisions. We do not make them accountable by taking responsibility away from them; we have to do the opposite. Making them responsible and accountable means that we, as the custodians, should set clear objectives and policies, so that when they are managing the programme, we can ask whether they have met those objectives and whether they have been successful. Those objectives may be cost objectives or other objectives.
The Clerk of the Parliaments has heard me say many times that I want to ensure that he can measure his activity against the clear policies we set. The arguments against decanting are about the big costs and that, in decanting, we are being too extravagant. Actually, one can make the case that decanting could save money. The QEII Centre was built some time ago and its own mechanics and electrics are in desperate need of renewal. That has been postponed, because we may move in and help it to do the work, so the process that we immediately think could cost a lot of money could save the public and the taxpayer a substantial amount of money. The issue is how we define those objectives and look at what we are doing as a whole.
One other thing that the noble Lord, Lord Forsyth, said was absolutely right. When we look at R&R, we must integrate properly what we are doing now in restoring this building. When I was on the Finance Committee, I thought, “Do we delay that to fit it in with R&R? Do we move forward on it? Is it taken into account in R&R?” All these issues have not been properly addressed.
We all have a responsibility—in particular, for the new governance structure, which I support. I should declare an interest, because I am going to be a member of the programme board; hopefully, I will be able to keep expressing the opinions I am expressing today. I will not be saying, “Tell me to make this decision”. I will be saying, “I want you to make the decision, but based on the clear policy objectives set by both the programme board and the two commissions”. That is what I hope to see but I am not fixed, by the way. If someone can persuade me that not decanting fully could work, I will go with it, but I like the idea that setting clear objectives, budgeting properly for them and having proper buy-in is a better way of doing this.
I support the regulations. We have made the decision anyway; we have already had a debate. I think that we will make this project more transparent with more accountability. I support that.
Lord True (Con)
My Lords, I am grateful to all those who have spoken in this debate. I must say, as a fairly recent tenant of the office of Leader of the House of Lords—it is a tenancy—I am finding it interesting trying to find out why and where things happen. Having experienced the horror of a powerful earthquake, as I have in my life, I sometimes feel like the little boy trying to find the butterfly that flapped its wings to cause all these things to happen in the first place.
However, we are where we are. As all those who have spoken in the debate have said, this is an extraordinarily important building. It is a palace of the people. As Leader of your Lordships’ House, I submit that its most fundamental importance is that it provides a place, and should provide an environment, in which Members of Parliament can carry out their fundamental democratic duties to hold Governments to account, consider legislation and discuss both between themselves and across the two Houses how things should be accomplished in the best place and in the best way. However we take this project forward—having listened to this debate, I know that an enormous amount of expertise and thought has been and will be given to this, and I pay tribute to the members of the sponsor body—we must never forget that this is a House of Parliament, and one that cannot simply say, “We can send these people away”.
I note what was said by the noble Lord, Lord Best, whose work on this and contribution to our House have been outstanding. We cannot avoid interference in a House of Parliament, as it was put by parliamentarians. That is why we are here: to make judgments and choose priorities. It may well be true that talk of a decant—the noble Lord was right in what he said on this—did cause some people to be troubled by what was proposed. But I assure your Lordships that the commissions have asked for a wider range of options to decant as we go forward, with Members and staff from areas of the building affected by the works being considered. The House will have future opportunities to take decisions, and it will be informed by full analysis and wide consultation and engagement. As someone said—perhaps it was my noble friend Lord Forsyth—it is important that Members feel engaged and informed as we go forward. The word “transparency” was also used by the noble Baroness, Lady Doocey.
Baroness Doocey (LD)
I am very pleased that the Minister said that there will be more transparency. That is very welcome. I wonder whether he would consider how the figures could be more transparent, because the whole of the spending on both the delivery authority and the sponsor body has been shrouded in secrecy—not for those of us on those bodies, but for everyone else. It would be much better if there was a process—I am not suggesting what it should be—whereby vast expenses are much more open and transparent, so that we can see what the money is being spent on before it is spent.
Lord True (Con)
My Lords, that is an important challenge. On the local authority that I once had the honour to lead, one of the first things I did was ensure that items of spending over a certain level were put on the web immediately, which was not then current practice. I am sympathetic to the aspiration. I am only Leader of the House of Lords; I am not commanding this process. As Leader of the House of Lords I will try to ensure that matters are as clear as they should be.
Lord Forsyth of Drumlean (Con)
On the point about my noble friend not commanding the process—in many ways, I wish he was—there is a real problem, to pick up on what he said about the most recent project. It is a cultural thing. It is a culture of, “We are here to be done unto by people who know what’s best”, and consultation consists of telling us, “This is what is going to be done.” When you say that it is not such a good idea, the response is that it is all decided. If my noble friend can change that culture, it would make it so much easier to make progress.
Lord True (Con)
My Lords, I fear that I have trodden too widely. This is not a debate about me personally—God forbid. Nor is it about the wider culture that my noble friend asserts exists. I have heard that said by others and I am conscious of it, and as a relatively new Leader of your Lordships’ House, as I said, I am extremely concerned that every Member of this House feels involved and engaged with all that is happening. To repeat my opening remarks, which were personal rather than from my draft, this before all else is a place where democratic work has to be done. Therefore, the role of Peers and Members should be pre-eminent in that.
On accountability, the process is being directed not by me but by the new in-house client team, in which I will have a part as a member of the commission on the client board, and it will be required to hold the delivery authority to account for the costs it presents. As I have said, the new head of the team is aware of the need to increase capability. The costs will be presented to the programme board in the way I have described. There will be extra expertise on it. All costs will be presented to the client board composed of the two commissions. I have described the process and will not go over it again. I am conscious of the noble Baroness’s challenge, and I am sure that those who read the debate will be too.
At this point, and with these regulations, we are simply seeking to wind up the sponsor body and launch the new ship, which I hope, despite the scepticism of noble Lord, Lord Best, who also expressed hope, will take us forward in an effective way, allowing Peers and Members to feel involved when considering options that will be presented next summer and which will come before both Houses for decision at the end of the year. We are just starting this process. I submit that we should allow and support it going forward. For all the proper scepticism that some noble Lords have expressed, I think the noble Lord, Lord Newby, is right to say that, ultimately, we have to do our duty to make sure that this building is fit for purpose and for future generations. That is the challenge.
It is clear that most who have spoken and others I have spoken to are committed to ensuring that this remarkable building, which we can proudly call our place of work, is protected for future generations. I hope that noble Lords will join me in supporting these regulations, which will come into force on 1 January 2023, as well as in supporting the delivery authority and those involved in programme going forward. All parties are represented on the boards involved, and I agree with the noble Lord, Lord Best, that there should not be politicisation of the process. It is important that those from all parts of both Houses should come together to ask challenging questions and to put themselves in a position to make decisions next year.
Motion agreed.