Parliamentary Voting System and Constituencies Bill

Debate between Lord Bach and Lord Kinnock

Monday 24th January 2011 Lords Chamber

[Lord Bach]

My Lords, the purpose of this amendment is to probe the thinking behind the territorial extent rule—rule 4—in Clause 11 and, in so doing, to test some of the fundamental assumptions that underpin the Bill’s proposed new system before drawing parliamentary constituencies. Rule 4 is designed to place a limit on the territorial extent of a constituency. The rule is deemed necessary because, if the principle of equality of representation was continued to its logical end, we would see at least one gigantic parliamentary constituency in the Highlands of Scotland. This is because the scarcity of population in that part of the United Kingdom means that a constituency would have to cover an enormous area if it was going to attain the proposed electoral quota of approximately 75,800 electors.

The electoral parity rule, born out of rules 2 and 5(3) in the Government’s scheme, is clear that every seat in Britain, save for the two Scottish island seats—and now, by the will of this Committee, the Isle of Wight—would have to have an electorate of between 95 per cent and 105 per cent of that UK average electorate, which means between about 73,000 and 80,000 voters. Rule 4 overrides that requirement. It states on the one hand that no constituency may exceed 13,000 square kilometres in size and on the other that a constituency may be exempted from the rule requiring it to meet the electoral quota in the event that it has a land area of more than 12,000 square kilometres.

What was the basis for these numbers? That is the first question that, we believe, stems from rule 4. There has never been, so far as we know, a statutory limit on the size of a constituency; still less has there been a statutory limit on electorates and an exemption from that limit based on territorial extent. Where did these numbers come from? The answer seems to be Ross, Skye and Lochaber, the constituency represented by the former Liberal Democrat leader, the right honourable Charles Kennedy, which is the only constituency that currently has a land area in that category of between 12,000 and 13,000 square kilometres.

Ross, Skye and Lochaber is the largest constituency in the United Kingdom. The Deputy Prime Minister told Parliament last summer, before the Bill was introduced, that,

“no constituency will be larger than the size of the largest one now”.—[Official Report, Commons, 5/7/10; col. 25.]

In fact, he did not quite stay true to his word. Thirteen thousand square kilometres—the maximum territorial extent allowed by the Bill—is 285 square kilometres bigger than Ross, Skye and Lochaber, which is 12,715 square kilometres. Before noble Lords accuse me of nit-picking, let me say that the Labour Member for Aberdeen North pointed out during debates on the Bill in another place that it is just enough to allow Ross, Skye and Lochaber, with its 52,000 electorate, to add some 21,000 voters from the city of Inverness, represented, of course, by the right honourable gentleman the Chief Secretary to the Treasury. That would be just enough to push Ross, Skye and Lochaber to within 5 per cent—5,000—of the electoral quota. We are not sure, however, that the Chief Secretary would be too keen on that.

Many people have harboured suspicions about this territorial size exemption, given the close relationship between the numbers in the rule and the dimensions of the said constituency. Some have viewed it as a crude attempt to protect the seat of the former Liberal Democrat leader. I do not take that view; this side does not take that view.

Even if that were the original intention, it has become apparent that it would not deliver that objective. The reality of the electoral parity law means that the Bill may result in the three new constituencies in place of the four currently representing the areas of Highland and Argyll. The seat most likely to disappear, assuming that the Boundary Commission for Scotland operates in its normal way, and regardless of whether it begins its calculations from south to north or north to south, is Ross, Skye and Lochaber.

The purpose of our amendment to delete the territorial extent rule is not to remove a special protection for the right honourable gentleman. He clearly has no such protection. It is to raise the fundamental question as to why territorial extent should be the only general factor written into the Bill that may warrant a departure from the electoral parity rule and why that exemption should itself be framed so narrowly. Rule 4 in the Bill can only conceivably have an application in one part of the United Kingdom: the Scottish Highlands. But why should the geography of that area be the only geography to qualify for special recognition in the construction of parliamentary constituencies? Of course, we understand why it might be sensible to put a limit on how large in territorial terms a constituency should be allowed to grow in pursuit of the electoral quota, but we ask whether it would not also be sensible to place some other protections on potentially undesirable geographical entities that could be produced as a consequence of the electoral parity rule. In other amendments, we have sought, for example, to ensure that island constituencies are guaranteed an allocation of whole constituencies.

However, further considerations should arguably be included in the proposed new rules. For example, Democratic Audit has said:

“It would make sense to ban constituencies straddling wide estuaries such as the Mersey, Humber, Clyde, Forth and Thames”.

When the Boundary Commission for England has proposed cross-estuary seats in the past, for instance on Merseyside, there has been strong resistance to such proposals. It is also said that some leeway might be allowed for the construction of constituencies in the Welsh valleys. The Democratic Audit report argues that there is,

“a case for allowing small departure from the usual rules if following them could lead to an absurd seat with a small part of one valley attached to a seat based on another valley”.

We would be grateful if the Minister could explain whether the Government would be prepared to take these situations on board. If not, what is so special about territorial extent, as opposed to the other special geographical concerns that we have mentioned?

[Lord Kinnock]

Just to underline and illuminate the point that my noble friend made in passing about the south Wales valleys, I report to him the words of the late Alec Jones, who, as the noble Lord will recall, was the Member for Rhondda, having been a Member for Rhondda West, which was then brought together with Rhondda East. There was at the time of that Boundary Commission report an idea that a part of what became the Cynon Valley constituency should be grouped in with Rhondda East and Rhondda West—that is, Rhondda Fawr and Rhondda Fach, or the large Rhondda and the little Rhondda. Alec Jones’s devastating comment on that to the Boundary Commission was, “Some bloody idiot has been using a flat map”. There is a huge danger, if the kind of amendment presented by my noble friend is not accepted and there are no clear indicators to the Boundary Commission to use its sensible discretion, that flat maps will plague a lot of constituencies, not just in Wales but in England and Scotland, that are interrupted by large geographical features that define communities. Unless proper consideration is given to that topographical reality, flat maps will come to be cursed.

[Lord Bach]

I am grateful to my noble friend for his intervention. My fear is not that the maps that are used will be flat but that they will make no difference. They may well show the contours of the mountains in between, but no notice could be taken of them, in any event.

I anticipate that the Minister’s answer to my question will reference the overriding principle of equalising seats. However, that principle is of course breached by the Bill in several areas and there should not be any ideological block on debating whether it ought to be breached even more. If the Minister were to try to explain the rule by reference to the accessibility of a constituency and the ability of the Member of Parliament to travel around it, why are Argyll and Bute, with its 13 islands, or St Ives, which incorporates the Isles of Scilly, not included also as exceptions to the parity rule?

It may furthermore be argued that the further loosening of the electoral parity rule by asserting the strict threshold imposed by the Bill merely brings Britain into line with other countries and international states. However, that assertion has been blown apart by an analysis of international electoral systems published this month by Democratic Audit, which concludes:

“Differences in constituency size … are to be found in Australia and the United States—where equalisation supposedly rules. Constituency size is always modified by locality and geography in some form”.

The article states:

“The startling truth about the government’s proposed equalisation scheme is that it would be the most extreme version used in any national legislature based on single member constituencies in the world”.

I repeat that,

“it would be the most extreme version used in any national legislature based on single member constituencies”.

The quotation continues:

“This is true both in terms of the number of tolerated anomalies and the uniformity imposed on the bulk of constituencies”.

The Government need to respond to these concerns. Their approach to constituency boundaries is too rigid and too uniform, but they still have time to correct the problem. There is no reason why these major reports should be rushed through without any proper consultation or analysis. We invite the Government to pause for thought and to take some time to examine how their changes would impact in practical terms—the only terms that matter—on UK constituencies and the communities that make them up.

The noble Lord, Lord McNally, told the House last June that common sense and a sense of history and geography would have an influence on this process. The narrow exemptions from the electoral parity rule currently contained in the Bill are inadequate to allow for that to happen. As with so much contained, we fear, in Part 2 of the Bill, the Government need to go back to the drawing board with respect to rule 4, which is what our amendment invites them to do. I beg to move.