Transparency of Lobbying, Non-Party Campaigning and Trade Union Administration Bill

Baroness Hayter of Kentish Town Excerpts

Monday 13th January 2014 Lords Chamber

[Lord Campbell-Savours (Lab)]

My Lords, I want to speak for less than a minute; I spoke at some length on this matter in Committee. The Bill is deceiving the public. The public expect the matter of the registration of lobbyists to be dealt with in this legislation. However, Parliament is now considering a Bill which excludes the vast majority of people in the industry. I object and I hope that the amendment of the noble and learned Lord, Lord Hardie, is accepted by the House.

[Baroness Hayter of Kentish Town (Lab)]

My Lords, I also support Amendments 1 and 11. I hope that I will not also have to support the amendment tabled by the noble Lord, Lord Norton, as we hope that we will have made the changes that will make supporting it unnecessary. Amendment 1 also stands in the name of my noble friend Lady Royall and myself. It is already clear that establishing a register only of consultant firms would add nothing to the existing voluntary register. It would omit hundreds of employers—the in-house, public bodies, charities and, perhaps most importantly, trade associations—as well as more than 1,000 individuals who work in this industry.

We have heard the Government boast about being part of the Open Government Partnership, and Ministers say that the public should be able to see who is lobbying Ministers. However, as we know, the Bill will not do that. It will only tell us the companies for which, for example, Bell Pottinger has had direct contact with a Minister over the past quarter. It will not name the individual lobbyists concerned, nor will it identify the company on whose behalf that meeting took place. So if a lobbying company met a Minister, for example, on behalf of a defence company, we still would not know that. In the hypothetical Bell Pottinger case, it has, according to Marketing Week, some 900 clients; so we would only know that Bell Pottinger was meeting somebody on behalf of one of those 900 clients but not which one it was. If the Minister, instead of meeting a consultant, met the actual defence company itself, or its trade association, that would not appear on the register at all, because the lobbyists would be direct employees.

This is very different from the United States where, we understand, Mr Cameron’s election guru, Jim Messina, has just taken up a job with the American Gaming Association, which is about to lobby on online gambling. That will all be declared, but in the UK, there will be no record of such lobbying by organisations such as the Association of British Bookmakers, despite the public interest in knowing who is lobbying the Government, in this case, on gambling.

According to today’s Daily Mail, the Chancellor took the boss of one of the world’s biggest makers of betting machines on his trip to Beijing. That is something that the company would not have to declare because it would be doing that lobbying direct. It is interesting that the Rank Organisation discloses far more than the Bill actually asks. It has decided to set out the spending that it makes in its government and regulatory affairs work—for example, £115,000 to Luther Pendragon, Ernst & Young and FTI and another £88,000 in membership fees to three trade organisations: the Bingo Association, National Casino, and the Remote Gambling Association. However, none of those would be required under the Bill. So, congratulations to Rank but not to the Government.

Similarly, we would know nothing about meetings between the big six energy companies and HMT or DECC officials because they use their direct staff for that. Or consider the anti-electronic-cigarette lobby, largely funded, I understand, by the pharmaceutical industry, which produces nicotine replacement therapy and ideally would like e-cigarettes off the market. Johnson & Johnson, GSK and Novartis have teams dedicated to that lobbying work, and none of that would be known under the current provisions.

I am afraid that the Bill is rather a damp squib and, unless we amend it, it will exclude virtually all business lobbying, whether done by the companies themselves or by their trade bodies. Worse, even where one of the big agencies such as Weber Shandwick or Bell Pottinger register, we will still not have a list of their staff so that if one of their lobbyists met a Minister, we would be no more the wiser about who that lobbyists’ clients actually were.

In the debate on Part 2, the noble Baroness, Lady Williams, who is not currently in her place, warned us of the danger to our democracy of American-style lobbyists, and indeed her autobiography, which I recommend, draws on her wide experience of that side of the Atlantic. She talks of the powers of lobbyists there and the extraordinary influence of organisations such as the American Association of Retired Persons, the National Rifle Association and the American Israel Political Action Committee. As she and your Lordships’ House must know, though, none of those or their UK equivalents would have to be registered under the Bill—nor the British Insurance Brokers’ Association; the Building Society Association; Philip Morris; FOREST; the nuclear industry; One Hub or None, which is in favour of Heathrow’s expansion; the CBI; the TUC; or the drinks industry, despite 130-odd meetings with civil servants to resist minimum unit pricing.

What is the point of the Bill, particularly this clause, if it does nothing to shed light on what goes on behind closed doors in Whitehall? For the sake of democracy and good governance, we need to see who is lobbying whom and about what. The register should cover the act of lobbying—the status, I think the noble Lord, Lord Norton of Louth, said—not the type of lobbyist, otherwise this is open to abuse. If an issue becomes very sensitive, you can simply have the lobbyists who have been working for an agency become directly in-house and put on the payroll of a particular company at that time, and then none of their activity will have to be registered. Or a small lobbyist could simply work part-time for 10 clients and be paid directly by them, and then we would know nothing about them.

A list of lobbying firms is not enough. That is not what was foreseen in the coalition agreement, it is not what the lobbyists themselves want and it is not what Unlock Democracy or Spinwatch want. The charities and trade unions have told us that they are very content for their public affairs professionals to be registered and to disclose their lobbying meetings. We strongly support Amendment 1 regarding the production of a proper, comprehensive and statutory register of all professions lobbying the Government. Democracy demands nothing less.

[The Advocate-General for Scotland (Lord Wallace of Tankerness) (LD)]

My Lords, the amendment moved by the noble and learned Lord, Lord Hardie, and supported by the opposition Front Bench would amend Clause 1 such that the register applied to professional, rather than consultant, lobbyists. The noble and learned Lord said that if the amendment was carried then it would need some consequential amendments. I respectfully suggest that it would need more than just consequential amendments because there is no definition of “professional lobbyists” in what he is offering to the House, of which I will say more in a moment.

From the discussions which I understand took place in Committee on this issue and on amendments previously tabled by the Opposition, it appears that they would capture—as the noble and learned Lord and the noble Baroness, Lady Hayter, made clear that they would wish them to—so-called in-house lobbyists in addition to consultants and, with Amendment 11, also employees. However, as I have said, there is no definition given of professional lobbying to accompany the amendment and its effect would therefore be that the provisions of this Part would be undermined such that a functioning register could not be established. I do not believe that that could simply be resolved by a number of consequential amendments.

We have discussed at length, in various debates on the Bill, the importance of clear definitions. Until now, the Opposition have struggled somewhat to define what they mean by “professional lobbying”, and now seem to have abandoned such a definition altogether. It is vital that we understand exactly who is intended to be captured by the amendments—whether this includes, for example, charities and all the paid employees of charities. Does it include church groups? Does it include the vicar who makes representations on behalf of his parishioners, because he is in paid employment? The noble Baroness shakes her head, but the problem is that without any definition we simply do not know who is intended to be covered by what she proposes.

[Baroness Hayter of Kentish Town]

We have said throughout that the definition used by the professional organisations—which would absolutely answer every point, as I am sure the noble and learned Lord must have read—is one that we are very content with.

[Lord Wallace of Tankerness]

My Lords, it is fair enough to say that, but it is not what the House is being asked to vote on today. It is being asked to vote on something which is devoid of any definition.

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[Baroness Hayter of Kentish Town]

There are two issues. The first is that there are some enormously large employers and we do not know whether they are lobbying over a particular application for planning permission, for a new medicine or for something else. The second is that unless they meet a Minister or a Permanent Secretary under the silly bit of this Bill, we will know nothing; whether they meet senior civil servants, Bill teams or policymakers in the Civil Service, that will not be covered at all.

[Lord Wallace of Tankerness]

My Lords, we shall come on to the second point made by the noble Baroness. I think it is the subject matter of the next group of amendments. We would not know any more just by listing the names of in-house employees who engaged in lobbying. You would still not know from doing that—and that is what this amendment seeks to do—whether that person was actually lobbying with regard to planning permission or not. That is why it is important that the parallel provisions which the Government are doing in quarterly returns as to which people Ministers and Permanent Secretaries are meeting is an important part of the whole picture. We shall deal in a moment with the points made by the noble Baroness because I think that she is missing out that crucial part.

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Moved by

[Baroness Hayter of Kentish Town]

13: Clause 4, line 2, leave out “of whether” and insert “that”

[Baroness Hayter of Kentish Town]

My Lords, Amendment 13 stands in my name and that of my noble friend Lady Royall. I shall also speak to Amendments 14 and 23. This Bill should be about raising standards within the lobbying industry, not least to provide reassurance for the public about the behaviour of lobbyists. While we therefore welcome the Government’s amendments, which build on the arguments that we made in Committee—because they at least recognise the existence of a code of conduct—it is extremely regrettable that the Government have not gone one step further and made it a requirement for registered lobbyists to undertake to abide by a code of conduct. Without something which makes a code of conduct obligatory, there will be absolutely no qualification as to who can get on to the register. Yet once someone is on a register, they will put it on the bottom of their headed notepaper and it will look as though there is some sort of approval for being on that register. That, of course, will not be the case.

I raised this question in Committee and as a result, the noble Lord, Lord Wallace of Saltaire, kindly wrote and clarified to me that even if someone was convicted under the Bribery Act, that would not prohibit them registering as a consultant lobbyist. As the noble Lord wrote in the letter, the register is not an accreditation system and anyone on it will not be considered to be “approved”. In other words, regrettably, this does nothing about raising standards or changing behaviour and nothing about giving assurance to the public that the lobbying of their elected Government is legitimate and above board.

Without any such a requirement to comply with a code, it will also be impossible to remove even the worst offenders from the register—the “slightly dodgy” lobbyists which were described by the noble Baroness, Lady Williams, in the earlier debate. Our amendment to the Government’s Amendment 12 makes the voluntary adherence to a code a requirement.

Our lesser amendment, Amendment 23, would permit the registrar at some time in the future to publish a code of conduct. This might simply be a best practice code, an indication of expected behaviour or an indication against which any allegation to a professional body might be judged. However, it would keep in play the idea that the register should be about behaviour and not simply a list of lobbying companies. I beg to move.

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[Lord Wallace of Tankerness]

My Lords, I do not think the noble Lord can reasonably expect a blanket application. There may be reasons—I do not know what they might be—that are not malign as to why a particular group has not signed up. We already know that a majority of lobbying firms sign up to and adhere to the respective codes of conduct, but we believe that making it a statutory requirement would lead to unnecessary pressure and that what we are proposing has struck the right balance.

I have a lot of sympathy for the point the noble Lord is making but it would not be appropriate to make a sweeping general obligation on all future Ministers when you cannot foresee particular circumstances that would occur at any time or place. I believe we have struck the right balance. I urge the House to support the Government’s amendments and I urge the noble Baroness not to press the amendment in her name.

[Baroness Hayter of Kentish Town]

My Lords, I thank the noble Lord, Lord Tyler, for what I think is his support for the approach we are taking on this.

Of course, Amendment 23 would be only permissive. It does not require the registrar to publish a code of conduct; it simply permits the registrar, should at some time in the future he or she feel the need to, to be able to do so. I am slightly surprised that the Government cannot even allow a registrar at some time in the future to be able to publish a code of conduct. They seem to be turning their back on any interest in raising standards.

The Minister spoke about the Bribery Act. Of course, the issue is that nobody will be able to be removed from this register for any criminal offence. We could have people convicted all sorts of tax evasion—anything—still on the register. I and others think that this would be very misleading as it will appear that they are on a statutory register and therefore have some stamp of approval.

As to the question of who would not sign up to it, I am sure that your Lordships’ House is well aware that the Association of Professional Political Consultants is supporting our amendment. It very much feels that it will be only the bad boy who does not bother signing up and that this really undermines the code of conduct.

I am not going to test the opinion of the House on this amendment. But in withdrawing it, I will say two things. First, it was very sad to read in the paper yesterday that the UN special rapporteur called this Bill,

“a stain on British democracy”.

Secondly, my fear is that, as per the warning of the Prime Minister, the next scandal waiting to happen will be from a consultant lobbyist, it will be behaviour that would have been caught by this code and it will be this Government who said they did not want to make signing up to a code mandatory. With those words, I withdraw the amendment.

Amendment 13 (to Amendment 12) withdrawn.