Privileges and Conduct
Debate between Lord Butler of Brockwell and Baroness Stowell of Beeston
Lord Butler of Brockwell (CB)
My Lords, I want to say a few words because, very unusually, I want to express a different view from that of my noble friend Lord Pannick, the noble Viscount, Lord Hailsham, and my noble friend Lady Deech.
Having taken part in the debates about Lord Lester, I of course recognise that when the House has the responsibility of reaching a verdict on the conduct of one of its own staff or Members and on any sanctions attaching thereto, it is vulnerable to the appearance of conflicts of interest. Quite understandably, this debate has concentrated on the subjects of bullying, harassment and sexual misconduct, which come into the code of conduct for the first time. But we have to remember that the code of conduct is hugely about other matters, not just those three; in fact, paragraphs 10 to 106 are about other matters that reflect the rules of the House.
Breaches of the code of conduct, including those in the future relating to bullying, harassment or sexual misconduct, will often be breaches of the criminal law. In those cases, it is obviously right that the inquiry should be entirely independent. It should be carried out by the police, have lawyers on each side and be subject to the courts of law.
In this case, even with our distaste for bullying, harassment and sexual misconduct, we are talking about something short of breaches of the criminal law. We are talking about the rules of the House. It seems anomalous that, in a self-regulating House, the ultimate decision on those breaches and the sanctions that attach to them should not be a matter for the House itself. I therefore agree with the report, which introduces a procedure in which there is an independent investigation and a committee with a significant element of independent members, but the discipline committee is chaired by a Member of the House and has a small majority of Members of the House on it. When we are talking about the rules of this body, like any other institution, it should ultimately be for this body to decide whether those rules have been broken and what sanctions should attach to it.
I welcome the respects in which the report makes changes. I welcome that it brings in bullying and sexual harassment, and I support the other changes, including the widening of the code of conduct to parliamentary activities, not just parliamentary duties. As I have said, I believe it is right that the discipline committee should have a small majority from the House because that seems consistent with a self-governing House. I also welcome the encouragement to the commissioner to call upon the support of teams of independent investigators to help establish the facts; in the case of Lord Lester, I felt that aspects of the way in which the commissioner carried out her investigation were defective.
One aspect of the report gives me pause—here, I follow the noble Lord, Lord Thomas of Gresford—and that is the proposed change to Standing Orders so that a report of the discipline committee is put to a vote of the House without debate. I see the dilemma here. On the one hand, like others, I am anxious to avoid the House getting involved in distasteful debates and votes, as in the case of Lord Lester. On the other hand, it seems that to vote on a question without any opportunity for debate is to go through the formality of obtaining the House’s assent without any reality in the substance; it is, to coin a phrase, “a meaningless vote”. Therefore, like the noble Lord, Lord Thomas of Gresford, I would prefer that the report of the disciplinary committee be subject to a take-note decision and not to a vote without debate.
Baroness Stowell of Beeston (Non-Afl)
My Lords, I welcome the report. I see it as an important step forward. It is right that a new committee is established and I support that committee including lay members. Whether or not there should be more lay or independent members in due course is a topic for further consideration. I am not sure I support those noble Lords who have argued for complete independence for the disciplinary regime of this House, because it is an important responsibility for us as Members to uphold the House’s reputation by being prepared to take appropriate action when one of us does something wrong. As the noble Lord, Lord Butler, said, it would be a mistake for us to completely delegate responsibility for that to an independent body.
Paragraph 24 of the report mentions a disrepute clause. My position on this does not lend itself to the debate on investigation versus inquisition but, since the report refers to disrepute, I want to take the opportunity to highlight why I think it is important for us as a House to understand that we carry a reputational risk at the moment. If a Member’s misconduct outside this House is so serious that their continuing membership would bring the House as a whole into disrepute, currently we are powerless to act. This is compounded because, being an unelected House, we are powerless to act if a Member in such a situation does not resign. I am talking about disrepute in a way which refers to something happening outside a Member’s parliamentary responsibilities and activities—in another part of their life—but which is extremely serious and becomes public. If that person continued to be a Member of this House, it would bring the whole House into disrepute.
When I was Leader of your Lordships’ House, I spent about a year working on a disrepute clause and was assisted by several noble and learned Lords. This work was presented to the Privileges and Conduct Committee and was accepted by the committee at that time, but it never made it to the Floor of the House. It has remained in abeyance ever since. When making her argument about the need to specify what might constitute disrepute, the noble Baroness, Lady Deech, indicated, as does the report, that it is too difficult to define what would be captured by such a clause—I believe this is one of the reasons why this measure has never become part of our disciplinary actions. However, that somewhat misses the point. We should never have to define what would be caught by such a power. We need to understand that if and when something so serious occurs, we would have the power to act in the way the public expect, precisely because the public do not have the power to act themselves.
I just wanted to note the fact that there is reference to disrepute in the report and that I hope very much that when the new committee is established it will consider this as part of its overall work plan, to strengthen our disciplinary regime.