Flags: Public Buildings

Wednesday 25th June 2025 Westminster Hall

16:00

[Sir Desmond Swayne (in the Chair)]

I remind hon. Members that they may make a speech only with prior permission from the Member in charge and the Minister. As is the convention for 30-minute debates, there will not be an opportunity for the Member in charge to wind up.

[Andrew Rosindell (Romford) (Con)]

I beg to move,

That this House has considered the flying of flags from public buildings.

Thank you, Sir Desmond, for calling me to speak in this debate about the importance of flying flags from public buildings across our United Kingdom. I have studied and campaigned on the subject for many years, even before I entered the House of Commons. In 2000, as a councillor in the London borough of Havering, I campaigned for the Union flag, also correctly known as the Union Jack, to be flown all year round from the main flag mast at our townhall in Romford. It was a great sadness to me that the then Labour council, supported by some members of the Havering residents association, voted against my motion to do so. That led to a public outcry, leading to the eventual backing down of the then administration, which accepted that the people of my borough wanted to see their national flag flown 365 days of the year.

I mounted a similar campaign when I entered Parliament in 2001, calling for our national flag to fly from the Victoria Tower throughout the year. But the tradition then was that it would only fly when Parliament was in session. After nine years of campaigning for this rule to change, I finally managed to persuade the powers that be that it was only right and proper that the Union Jack should fly all year round, during weekends, evenings and recess periods—at all times.

The idea of the flag flying only when the House was sitting originated, so I was told, from when the monarch looked out of their window at Buckingham Palace to see whether the flag was flying and know whether Parliament was in session. When Her Majesty, our dear late Queen Elizabeth II, visited Romford around the time of the golden jubilee, I was proud to sit with her over lunch in the Wykeham Hall of St Edward’s church in Romford market and was able to discuss the matter directly with her. I was surprised to learn that Her late Majesty had never heard of that tradition. She told me that when she wanted to see whether the House was sitting, she would generally switch on BBC Parliament.

After much debate, following that revelation, the Union flag was eventually raised permanently above the Victoria Tower on 6 January 2010, where it has proudly flown every day ever since, for the millions of visitors to London to see and for everyone to take pride in.

[Jim Shannon (Strangford) (DUP)]

I congratulate the hon. Gentleman on securing this debate, which intrigues me. Coming from Northern Ireland, we are a nation of flag fliers; I have flown a flag nearly all my life. Does the hon. Gentleman agree that the only flag that should have pride of place on public buildings is the Union flag? We should take the opportunity to fly it to encourage a sense of national pride, and as a symbol of the things that unite us. We have different colours, creeds, genders, ambitions, qualities and skills, but we are all British, and together we can make this United Kingdom of Great Britain and Northern Ireland a better place for everyone.

[Andrew Rosindell]

I entirely concur. I commend the hon. Member for his patriotism, his love of country and his understanding of the importance of being proud of being British. Flying the Union flag is an essential part of that.

I refer the House to early-day motion 1199 of 29 March 2010, signed by Mr Speaker himself, which records the significant moment in parliamentary history when the Union flag was raised permanently on the Victoria Tower in the Palace of Westminster. In 2007, I established the all-party parliamentary group on flags, which became the APPG on flags and heraldry, and which now forms a central part of the APPG on British heritage, which I am proud to chair.

[Sir John Hayes (South Holland and The Deepings) (Con)]

It was in that guise that my hon. Friend came to see me on the subject when I was a Cabinet Office Minister. We had some success in that venture, as he will recall, and subsequently, thanks to my right hon. Friend the Member for Hertsmere (Sir Oliver Dowden), we had further success. We worked together to ensure that flags were flown from Government buildings across Whitehall; no doubt my hon. Friend will tell us about that. He deserves great praise for his endurance, perseverance and determination.

[Andrew Rosindell]

I thank my right hon. Friend for his continued support for flying the Union flag and other national flags across the United Kingdom. When he was a Cabinet Office Minister, he was entirely supportive of the campaigns that I have been running for many years. I thank him for that.

The APPG on British heritage is meeting today at 5 o’clock to discuss issues relating to flags, heraldry, national symbols, historic counties, patron saints’ days and all things important to the heritage of our proud island nation. I put on record my thanks to the president of the Flag Institute, Captain Malcolm Farrow OBE, and the institute’s chief vexillologist, Graham Bartram, for their support and guidance over all these years on matters relating to flags.

I commend the work of the Flag Institute, the expert institute that understands the importance of flags and the protocol that surrounds them across the United Kingdom, the Crown dependencies and the British overseas territories. I also commend the College of Arms and Peter O’Donoghue, the York Herald, who has given us extremely good advice on the topic over many years. The College of Arms registers flags in its institution: they are there for all to see, admire and recognise as important parts of our national character.

[Chris McDonald (Stockton North) (Lab)]

Many towns and boroughs, such as Stockton and Billingham in my constituency, have achievements of arms featuring important emblems of the past of the town. In Billingham, we have a ship as our crest; in Stockton, there is an anchor and a sea lion, celebrating our shipbuilding and maritime past. Does the hon. Member agree that the flying of achievements of arms as flags over town halls not only enables heraldists like myself to experience some joy, but enables people in the local area to have real pride in their town or borough?

[Andrew Rosindell]

I completely agree. I only wish that my own London borough of Havering would recognise that. I have tried for many years to ensure that the Romford town crest is displayed in Romford. Sadly, however, because of the corporate identities of London boroughs, my borough has steadfastly refused. I fought that battle against my own party, which governed the council for 20 years and failed to do anything about it, and I am still fighting against the current council, which is controlled by the residents association. Local patriotism, local town crests and local flags are also very important to the culture and make-up of our great British society.

[Douglas McAllister (West Dunbartonshire) (Lab)]

Prior to my election to this place, I was provost of West Dunbartonshire council; “provost” is the Scottish term equivalent to “mayor”. One of my civic roles was to have complete responsibility for which flags would be flown from our civic buildings across the whole of West Dunbartonshire.

My experience is that flying flags is often a source of division. Somebody would always object when I decided to fly the Union flag or to fly the saltire. Does the hon. Member agree that the authority to fly flags should never be used to stoke division or hate in our communities? It should always be used as a force for good, such as in the flag-raising ceremonies that we often had on national days across the United Kingdom? We had flags for international Holocaust Memorial Day, Merchant Navy Day, Armed Forces Day and Commonwealth Day. We would fly those flags on our civic buildings. Does the hon. Member agree that there is a purpose to that?

[Andrew Rosindell]

Yes, I do. I thank the hon. Member for his helpful intervention. I will refer to much of that later in my speech.

On the matter of flying flags from public buildings, I draw the attention of the Minister to my early-day motion 1452, which so far has been supported by my hon. Friends the Members for Windsor (Jack Rankin), for Mid Leicestershire (Mr Bedford), for Bromsgrove (Bradley Thomas) and for Broxbourne (Lewis Cocking), the right hon. Member for Belfast East (Gavin Robinson) and the hon. Members for Great Yarmouth (Rupert Lowe), for Strangford (Jim Shannon) and for East Londonderry (Mr Campbell). I also thank Ryan-Mark Parsons and George Bundock, the staff of the hon. Member for Mid Buckinghamshire (Greg Smith), for their advice and amazing support for the campaign to uphold neutrality in flying flags from public buildings.

It is now more important than ever for this House to recognise and unequivocally support the importance of maintaining the institutional neutrality of Government and publicly funded spaces. That is particularly vital when seen in the context of a range of entirely new and overtly political flags or banners—as they should be correctly referred to—being flown not only by individuals, as is their right, but by publicly funded bodies such as local councils, town halls, civic centres, hospitals, schools, universities, police stations, railway and underground stations, bus garages and other institutions and organisations, as well as Departments of His Majesty’s Government.

This innovation of recent years is not only alien to the civic traditions of this country. I believe that it is emblematic of a declining understanding of the importance of national unity and pride in our national heritage and constitution that is often alienating to many hard-working, law-abiding citizens of this great country who see themselves, first and foremost, as British and not part of a minority or a separate community. I believe that the British people firmly stand for upholding neutrality of the public square, enabling all to have their welcoming corner, but under one nation, one Union flag and one King.

The recently announced policy of Reform UK is actually the policy that I have long championed. I am glad to see it adopting that stance in the local councils that it now controls across England. I believe that all political parties should do the same. Our free society is one that I cherish, but all that we have in Britain today is founded on our forebears, embracing one cultural heritage based on the customs, traditions, conventions, laws and constitution of these islands. I am sure that some in this House may hold a certain reticence about the position that I am taking, but I say to them that it is abundantly clear that the flying of identity-based political banners, especially those representing what is sometimes only a slim, exclusive and often exclusionary subset of a particular interest group or social movement, is often seen as implicitly endorsing a specific viewpoint.

Some may ask why there is any problem with that being a permissible approach for public bodies to take. They may say that this great nation should accommodate freedom of belief and expression that finds voice in flying flags. I fully accept, and indeed endorse, the notion that free individuals and organisations on their private property may express their identities and customs in whichever manner they see fit, but a publicly owned building or a state-owned or funded institution must, I believe, maintain neutrality.

For example, if a town hall chooses to fly a banner for one group of people, it would surely be obliged to fly one for another group, and another group, and so on. In so doing, the council will inevitably appear to be endorsing every cause, identity and political campaign, of which there are absolutely no limits. Not only is that divisive to many who do not necessarily support the cause in question, but the costs and staff time spent on displaying a seemingly never-ending array of banners and flags to please and appease every possible cause—not to mention the organisation of individual ceremonies to go with them—is devaluing the significance of flying the flags of nation, country, county, city, village and town that unite and represent everyone in that community. Indeed, it is becoming unmanageable, as so many banners representing a multitude of groups and causes are being added to the list. It simply has to stop.

We must restore a flag protocol regime that upholds our national identity, which should always come first, followed by that which represents our country, boroughs, counties, cities, towns and villages. Of course, no flag of any kind should take precedence over the Union flag on a public building, apart from the royal standard when His Majesty is present.

Private expression of political sympathies, and other institutional expressions of political sympathies, are entirely different. Although individuals and communities must continue to be free to express their identities and customs, including by flying flags of public institutions, they should exercise extreme caution and professionalism in order to remain inclusive to all British citizens regardless of their views. Quite contrary to silencing minorities, this age-old position ensures that everyone can pursue their expression and association, find a place and be represented in this country under our nation’s official flags. That is the only logically defensible position, and it is the stance taken by the vast majority of British people, with whom I am in profound agreement.

Once we have accepted the importance of maintaining the neutrality of the public square, enabled by the local and national publicly funded institutions of this country, the particular rules for how that should be governed must be decided and expressed in plain English. There is guidance on flag etiquette and rules on flying flags, and the Flag Institute are the experts in this field. I hope the Minister will take advice from them in making sure that everything is handled in the correct fashion.

Flag protocol largely dictates how flags should be handled, including how they should be put up, taken down and illuminated. There are flags that require special consent to be flown, and others that do not and ought not, such as national flags, the Commonwealth flag and flags of the United Nations. They should, of course, be flown. There are also flags that are rightly and expressly banned from being flown, most notably those of proscribed terrorist organisations. These rules should strictly be enforced in their entirety. However, there is a grey area in the middle that has been not only occupied, but actively exploited by minority and sometimes extreme political factions—as well as their subscribers or sympathisers—in public institutions.

That is the area for which new guidance and rules ought to be implemented, published and enforced, so that we can prevent the domination of public institutions and the public square by overtly political interest groups. That would prevent the continuous vying for a position of institutional dominance by a range of sometimes extreme minority groups, of both the left and the right, which are unrepresentative of British people, culture or heritage, and enable freer expression and a sense of belonging for all British people.

I therefore call on all public bodies, especially those representing national and local government, to adopt clear and consistent policies limiting flag displays to flags representing the nation, country, county, borough, city, town and village or those representing the monarch, the royal family or officially recognised flags, to preserve neutrality, true freedom and toleration.

[Douglas McAllister]

Will the hon. Member give way?

[Andrew Rosindell]

I am afraid I have to continue as I have very little time to complete my speech.

When representatives from other countries visit, it is of course right that, out of courtesy, their national flag should fly for the occasion. Alternatively, when there is a tragic event in a particular country, it is right for that nation’s flag to fly for a strictly limited period out of respect and sympathy.

I firmly believe that we are reaching a point of broad consensus on the flying of flags, and it should be based on the principles of neutrality of public institutions, public buildings and the public square when it comes to matters of deep political controversy, much like the position of Speaker of the House of Commons. That is needed now more than ever.

I have here a copy of the booklet on the approved flying of flags. It is available in the Speaker’s Office. It explains the policy on flying flags on flagpoles on the parliamentary estate and outlines what I consider to be, with a few exceptions, a broadly correct approach. However, I strongly believe that the cross of St Patrick or the red hand of Ulster should be flown on 17 March for St Patrick’s Day, in addition to the cross of St George, the cross St Andrew and the red dragon for St George’s, St Andrew’s and St David’s Days respectively.

However, in many town hall and public buildings across the UK, political polarisation has reached a new height. Change in a variety of social and political principles is coming fast. Civic unrest is on the rise and I do not believe that ever more calls for diversity are the answer. We need a more unified approach, with the British people represented by national symbols, including flags, which bring us together and do not divide us further. One example is the so-called Progress Pride flag, which many believe promotes a contentious ideology that harms women and vulnerable children. It is clearly politically divisive and should not be flown from public buildings anywhere in the United Kingdom.

There is a clear and simple expression of the position that I believe we ought to adopt. We must recognise the importance of institutional neutrality in government and publicly funded spaces. We must acknowledge that the flying of political flags can be seen as implicitly endorsing specific viewpoints.

We must enable individuals and communities to freely express their identities and customs, while ensuring that public institutions exercise strict caution to remain inclusive to all British citizens. We must call on all public bodies, especially those representing national and local government, to draw up clear and consistent policies limiting flag displays to country, county, city, borough, town, village, military or those that represent the monarch, the royal family or officially recognised flags such as Armed Forces Day, VE Day, VJ Day, and for occasions such as the Royal Air Force flag for Battle of Britain Day, the red ensign for Merchant Navy Day, the Royal Navy flag for Trafalgar Day and the British Army flag on Waterloo Day.

We, the Parliament of the United Kingdom, must give a firm answer to the grey area filled with uncertainties and questions. It must be one of unifying patriotic neutrality. Finally, I commend His Majesty’s Government for continuing the tradition of flying the flags of historic counties for one week in July every year. Our historic counties, my own being Essex, make up the genuine identities of peoples across these islands, separate from the administrative and council boundaries. However, I strongly believe that the display of county flags in Parliament Square each July for Historic County Flags Day should be strictly restricted to the historic county flags alone. Regional flags and other flags can be flown on other days, but it is important that only historic flags representing the historic counties are flown.

Sir Desmond, thank you for allowing me to speak at such length today. I commend the Minister for her interest in this subject. I also thank her for visiting the Channel Islands earlier this year, where I am sure she was proud to see the flags of Jersey, Guernsey, Alderney and Sark for their 80th anniversary of Liberation Day. Pride and patriotism in our countries is something that all people, and all members of all parties, should be proud to uphold. I have no doubt that the Minister will not disappoint Members of this House today.

[Sir Desmond Swayne (in the Chair)]

I call the Minister, in the time that remains to you.

16:22

[The Parliamentary Under-Secretary of State for Culture, Media and Sport (Stephanie Peacock)]

It is a pleasure to serve under your chairship, Sir Desmond. I will do my best to do justice to this very important subject in the very short time I have. I begin, of course, by congratulating the hon. Member for Romford (Andrew Rosindell) on securing this important debate, and on what was a thoughtful and passionate speech about an issue he has cared about for many years. I join him in thanking the flag institution, the College of Arms.

Flag flying is a very British way of showing joy and pride as regions, as communities and as a nation. It brings people together to express shared identities. The Union flag is the primary symbol of our nation and rightly takes central position in flag flying as a source of unity. It appears on the flags of many of the UK’s overseas territories and our fellow Commonwealth members. The Union flag is a joint expression of our history, our national identity and the UK’s place in the wider world. I was especially struck by its importance and meaning when I attended the Liberation Day event in Jersey on 9 May, to which the hon. Gentleman referred. I know he takes a really keen interest in that subject. Of course, that event marked 80 years to the day that the islands were liberated from Nazi occupation, with a re-enactment carried out by Force 135, the British liberating force of 1945, supported by the Royal Marines. It included the raising of the Union flag, as it occurred on Liberation Day on 9 May 1945.

In Wales and Scotland, flag flying on public buildings is a devolved matter. In Northern Ireland, the issue is subject to special regulations set out by Ministers at the Northern Ireland Office.

The Government support state and ceremonial events by helping London look its best for occasions, such as the recent commemoration of VE Day and Remembrance Sunday each year. They often involve flying flags on some of the most highly visible public buildings and spaces in the country. Every year, we adorn the Mall, Horse Guards Parade and Parliament Square with flags for state visits, trooping the colour and other occasions, visible to thousands of people each day. The Cenotaph is the public space where flag flying is at its most sensitive and poignant. It is the national war memorial and focal point for public mourning. Last month, to mark the 80th anniversary of victory in Europe, the Cenotaph was draped in two large Union flags, emulating the way in which it was first revealed to the public in 1920. As I am sure that Members would agree, the results were spectacular.

In addition to the events described, the Government take an active role in promoting public flag flying across Britain. We disseminate an annual list of designated days on which all UK Government buildings are required to fly the Union flag. That ensures that it is flown on some of our nation’s important cultural occasions, including to mark Remembrance Sunday and the anniversary of the King’s accession.

The Union flag has its origin as a royal flag, developed first in 1606 by James I and added to in 1801. For much of its early history, it was flown solely above royal residences, aboard naval vessels and in other specific circumstances. By the 1920s, the practice of flying the flag had been formalised into the list of designated days—such as the sovereign’s birthday, or anniversary of the coronation—on which Government buildings, in addition to royal properties, were expected to fly the flag each year. As a legacy of that practice, until 2008 Government buildings were expected to fly the Union flag only on specific dates. That was consulted on following the 2007 Green Paper entitled “The Governance of Britain”, which highlighted the importance of the Union flag and sought to broaden its use.

As a result, in 2008 the Labour Government, under Prime Minister Gordon Brown, allowed Government buildings to fly the Union flag on any day of the year, rather than solely on royal and ceremonial occasions. That was further expanded in 2021, at the decision of Ministers. Since then, Government buildings have been not only allowed but actively and formally encouraged to fly the Union flag every day. Consequently, more Union flags are now flying from Government buildings than ever before, actively fostering the sense of national unity and pride that we all value so highly. The hon. Member for Romford spoke movingly about the history of the flag flying over Parliament and the important change in 2010. Of course, another important Government duty regarding public flag flying is that in times of national mourning or tragedy, instructions are issued to require the half-masting of the Union flag on UK Government buildings.

The approach taken by Departments to flying flags more generally on their buildings has evolved organically over the last 15 to 20 years under successive Governments. With the approval of Ministers in government at the time, Departments have, in addition to the Union flag, increasingly flown other flags to show support for causes in Britain and throughout the world. For instance, many people will have seen on the way here the Armed Forces Day flag flying proudly from buildings along Whitehall in preparation for the day itself, which is this Saturday. I began this week by attending the flag-raising ceremony at Barnsley town hall to see our Armed Forces Day flag raised and flown as we pay tribute this week to our brave service personnel ahead of Armed Forces Day on Saturday 28 June.

I know that the hon. Member for Romford has long encouraged the Government to fly the flags of the British overseas territories and Crown dependencies to recognise their importance, and I am pleased that although they were not frequently flown in the past, that has become more common. Hon. Members will be aware that those flags are currently flying in Parliament Square, alongside the flags of Commonwealth nations along Horse Guards, and Union flags along the Mall. This is since the 80th anniversary commemorations of VE Day in May, and with the upcoming state visit by President Macron of France, they will continue to fly.

The practice of Departments flying the Pride flag, which the hon. Gentleman referred to, or other LGBTQ+ representative flags, has increased since March 2014, when the Cabinet Office flew the six-stripe rainbow flag to mark the first same-sex weddings taking place in Britain. The then Deputy Prime Minister, Nick Clegg, said at the time:

“Raising the rainbow flag on Whitehall is a small symbol to celebrate a massive achievement.” 

After that, more Departments have chosen to fly it. That does come from a conscious decision of the elected Government of the day, but I want to acknowledge that over time the Government approach to decision making for flag flying from Government buildings and the implementation of central guidance have developed organically, following the policies of successive Governments. That has enabled individual Government buildings to select and fly flags whose meaning is rooted in their Department’s specific remit, or that have particular significance.

Although the Government’s primary duty in relation to flag flying from Government buildings is to celebrate and encourage the Union flag as a symbol of the UK as a whole, we are working with officials to consider whether further central guidance to Departments regarding flag flying may be helpful to ensure that decisions and implementation by Departments are as consistent and transparent as possible. That would mirror the approach taken at local level. In the time that I have left, I want to echo the hon. Gentleman’s comments on historic counties and how local decision makers do know best.

In relation to Government buildings, we acknowledge that the individual processes for decisions on flags will vary and could benefit from further accountability and transparency. I am a very passionate believer in the Union flag. I have it displayed in both my offices—here in Westminster and in the constituency. One of my formative memories is of drawing a St George’s flag to fly when England were in the semi-finals of Euro ’96, although sadly it did not have the desired effect. And as Minister for VE and victory over Japan commemorations, I have been encouraging local communities to display Union flag bunting as part of local events. I know the joy that it brings to many.

Flag flying on public buildings is an emotive subject, and we respect the strongly held views of people across the country who want to see it represent our unique strengths as communities, regions and a nation. I am very grateful to the hon. Member for Romford for bringing to the House this important debate.

Question put and agreed to.