Dissolution and Calling of Parliament Bill

Debate between Brendan O'Hara and Geoffrey Cox

Committee stage & 3rd reading
Monday 13th September 2021 Commons Chamber

[Brendan O'Hara]

I am sure I am not the only person in this House who can see the irony of how taking back control supposedly has led us to a position where Parliament is being neutered by the Executive, and the people who were most loudly proclaiming “Take back control” are the people holding the scissors and doing the neutering—if that is not too much of an image, Mr Evans.

If the Bill passes, as well as there being no parliamentary or legal scrutiny, an active debate will still rage about whether the monarch’s prerogative powers would return to exactly as they were in 2011. I notice that, in her letter to the Chair of the Public Administration and Constitutional Affairs Committee, the Minister acknowledged that

“there remains a role for the sovereign in exceptional circumstances to refuse a Dissolution request.”

But the monarch’s prerogative powers are now being enshrined in statute, having been removed by statute; they are now being restored by statute. So what exactly are the exceptional circumstances in which the monarch can refuse a Dissolution request? How can the Lascelles principles, which we heard earlier were prerogative powers, now be statutory powers? I cannot see how this returns us to the position we were in in 2011.

Therefore, we have been and will continue to be extremely uneasy about the insertion of the ouster clause making the Government’s action in relation to the dissolution of Parliament non-justiciable. As I said, we share the concerns of many Members across the Chamber that the repeal of the Fixed-terms Parliaments Act would not automatically take us back to the position of 2012 and we need a lot more clarity about exactly what legal position we would be in.

The Chair of the Public Administration and Constitutional Affairs Committee pointed out in a letter to the Minister:

“The Fixed-terms Parliaments Act was passed and the consequences of this cannot simply be wished away.”

I note that, in her response to the Committee Chair, the Minister accepts that there is an academic debate about the issue, but she seems to believe the opinion of her academics that the courts

“will be required to act as if the Fixed-term Parliaments Act had never been enacted”

and that they will be

“required to pretend that it never happened.”

It is a ridiculous situation and an extremely unsatisfactory position in which we find ourselves. For years, as my hon. Friend the Member for Glasgow East (David Linden) said, we have heard this Government talk about taking back control and the importance of parliamentary sovereignty. This is an early test of how this Parliament takes back that control, and the Executive are legislating to prevent it from happening. If the Bill is passed as it stands, Parliament and the judiciary, and arguably the monarch’s traditional role, will no longer be in play, and the decision to dissolve this place and call a general election will be entirely in the hands of the Prime Minister, who may call one when it is politically expedient so to do. That is not how a modern liberal democracy should function, and that is why we will not be supporting the Bill.

Back in January, both Lord Sumption and Baroness Hale were unequivocal in their evidence that the minimum safeguard required in the event of an ouster clause being put in place was the inclusion in the Bill of a time limit on the moving of writs for parliamentary elections. However, as it stands, there is no such provision in the Bill; six months on, the Government have not produced anything of the sort, and the original clause remains. In effect, that allows the Government to decide the length of a period of Prorogation, the gap between the Dissolution of Parliament and an election, and indeed the gap between an election and the first sitting of a Parliament. That is deeply worrying. The Government had an opportunity to take the advice of many learned people and improve the Bill. They refused to take that advice, and I fear that it is sinister and troubling that they did not.

[Sir Geoffrey Cox]

It is a great pleasure to follow so erudite and intelligible a speech from the hon. Member for Argyll and Bute (Brendan O'Hara).

I have an experience that is very rare in my political career—a sense of complete vindication. I voted against the Fixed-term Parliaments Act in 2011, when it was brought in, and I seem to recall saying then what I hear the Minister saying from the Front Bench now: that it would not work and that it was an abominable intrusion and distortion of our constitution. I see this Bill as a welcome correction that brings our constitution back to the fundamental principle, which has existed for many years, that, with the important exception that the monarch has the right to speak his or her mind at the time the Prime Minister requests a Dissolution, and in the last resort even perhaps to decline it—although it would not be known for many years that he or she had—it should be the case that the Prime Minister can advise Her Majesty to dissolve the House. We are at last returning to sanity and, with the pardon of the hon. Member for Rhondda (Chris Bryant), to normality when it comes to the constitution.

However, I say to the Committee and the Minister that there is an issue that troubles me. It seems to me that, when we presented our manifesto to the country in 2019, we did not only promise that we would restore the balance of our constitution by repealing the Fixed-term Parliaments Act. We presented the country then with a constitutional programme, or at least the willingness to look fundamentally at our constitution and to consider deeply whether we should restore to a more Conservative and a more traditional basis other aspects of our constitution, too.

In welcoming this Bill, therefore, I say to my hon. Friend the Minister that I hope that it is not the last measure that we will introduce in the portfolio that she occupies. At the moment, I look at our offering and I see this Bill, which I fully support, I see the Elections Bill, which I also support, and I see the Judicial Review and Courts Bill. I hope we are not going to be quite so timid as to present that as our sole offering to the country. In 1997, the Labour party was elected. One thing one can say about that Government is that they came in with a coherent, radical plan for the constitution, and they then enacted it with complete ruthlessness, and with complete disregard for Opposition voices. I was in the House some years later, and I recall vividly how the Labour party steamrollered its constitutional changes, including the Constitutional Reform Act 2005, through this House with very little by way of consideration and regard for alternative voices.

We now have a majority comparable to that, and I hope that we will not squander that opportunity. There are important things that we should now be doing. I have some sympathy with the plea this afternoon by the hon. Member for Rhondda that we should be considering Prorogation. So we should. We should be considering whether the Supreme Court’s decision in Miller No. 2 should stand. We should be considering whether other decisions of the Supreme Court should be allowed to stand. There comes to mind, for example, the Adams case, in which Mr Gerry Adams was effectively acquitted of his convictions in 1975 because the Supreme Court held that the Carltona principle in effect did not apply to the decision then taken. That, in my view, is a matter that this House ought to be reviewing.

I say to right hon. and hon. Members and to my friends on the Government Benches that we must not regard the constitution as an area that is too complicated for us to go into. We must not accept the liberal consensus, as it is no doubt called, upon which the new Labour Government in ’97 traded. We must not accept that these things are permanent features of our constitution. They were not introduced with our consent, and we have every right, with the mandate from the people that we now have, to reconsider them.

I say to the Minister that I applaud this Bill, and I applaud her particularly. I was impressed, if I may say so, throughout the course of her presentation by how deeply competent and how completely on top of her brief she was. Thank heavens for such a Minister.

European Union (Withdrawal) Bill

Debate between Brendan O'Hara and Geoffrey Cox

Committee: 3rd sitting: House of Commons
Tuesday 21st November 2017 Commons Chamber

[Mr Cox]

It does make sense, because all that does is restore us to a position pre 2009 in the European Union. The general principles will still apply. There is no inconsistency by allowing the general principles—subject to amendments, which I am not speaking on; I have some sympathy with the amendments tabled by my right hon. and learned Friend the Member for Beaconsfield —but I am convinced that incorporating the charter would be wrong and unwise. As a matter of policy, I urge my right hon. and hon. Friends and Opposition Members not to vote for that.

[Brendan O'Hara (Argyll and Bute) (SNP)]

I rise to participate in this debate as something of a rarity: a non-lawyer. I will try to keep my comments within the allotted time of between 10 and 12 minutes.

I wish to follow the compelling and intelligent case made by the right hon. Member for East Ham (Stephen Timms), and I am delighted to speak in support of his amendment 151, which highlights, in particular, the consequences facing millions of British citizens and thousands of companies if the UK’s data protection legislation cannot be reconciled with EU law post Brexit. If clause 5 is passed unamended, and should the UK crash out of the EU on 29 March 2019 without a deal, I fear that the UK will find itself non-compliant with EU law and the charter of fundamental rights, and that therefore the framework that affords us the unencumbered free flow of data—not just within the EU, but with the safe nations with which the EU has reciprocal deals, including the United States—will immediately be under threat.

The consequences for the businesses and individuals who rely every day on that free flow of data across international boundaries—a free flow that needs to occur safely and without delay, cost or detriment—are unthinkable. As the Software Alliance said in its recent report,

“The benefits of cross-border data transfers are vital, not only for the technology sector but also for financial services, manufacturing, retail, healthcare, energy and most other sectors”.

The Data Protection Bill impact assessment, published last month, recognised the huge economic importance of the UK being able to guarantee effective unrestricted data flow and predicted that being at the forefront of data innovation could benefit the UK economy by up to £240 billion by 2020. Despite the warnings of businesses and their own impact assessment, however, the Government, in implementing clauses 5 and 6, seem determined to make the UK some kind of digital island, cut off from the rest of the global digital economy.

One would have thought, at a time of so many data breaches and cyber-attacks, that ongoing data co-operation with our European partners and others was not just desirable but essential post-Brexit. If creating a digital island is not the Government’s aim, I strongly suggest they make securing a workable compliant data protection deal with the EU one of their main priorities. It is not enough for them simply to assume that we will attain the status of adequacy by default—because we will have implemented general data protection regulations—or that, come what may, the minute we leave the EU our data protection laws will automatically be harmonised with the EU’s. That is simply not the case.

As we heard from the hon. Member for Nottingham East (Mr Leslie), the right hon. Member for East Ham and others, the European Court of Justice has already ruled, in both the Watson and Tele2 cases, that the implementing of a GDPR simply is not enough automatically to secure an adequacy by default agreement from the EU. The only avenue I can see for the Government, therefore, if they wish to achieve adequacy by default status, which they claim to desire, is to secure a deal with the EU that complies with European law before we leave. To do that, we would require a transitional period, during which we could negotiate a deal while remaining inside the single market and customs union and under the jurisdiction of the ECJ. That is one way for the Government to find time to negotiate the adequacy by default status. Of course, the other, and much more straightforward, option would be for the Government to commit to the UK remaining inside the single market and customs union and under the jurisdiction of the ECJ, given that no one in the UK ever voted to leave the single market or the customs union.

To be clear, the consequences of the UK crashing out of the EU without a deal would be catastrophic, particularly for businesses in the telecommunications and financial sectors, which are heavily reliant—almost entirely dependent—on the unrestricted free flow of data. The right hon. Member for East Ham detailed the importance of data to the UK economy. In the decade to 2015, the amount of cross-border data flow increased twenty-eightfold in the UK, and currently digital and data-intensive sectors of the economy account for 16% of UK output and 24% of our total exports. But as the clock ticks down to Brexit, I know that businesses that rely on the free flow of data are becoming increasingly concerned. They need to know now what is happening: they cannot plan for the future simply on the basis of a vague Government promise that somehow it will be all right on the night. I fear that, if they do not have guarantees about exactly what is happening well ahead of Brexit, they will vote with their feet and leave, like the European Medicines Agency, which announced last night that it was moving 900 high-tech, high-value jobs from London to Amsterdam.

Businesses cannot afford the risk of finding themselves outside the EU data protection area, and they cannot and will not wait until the last minute to find out what is happening. That is not commercially viable. Contracts would have to be rewritten and bills renegotiated, and things like that do not happen overnight. I fear that, if there is no agreement on an issue as fundamental as data protection, many large, high-net-worth companies which provide high-value jobs will begin to seek the stability that they need outside the United Kingdom.

As I said earlier, I seriously question whether maintaining a frictionless cross-border data flow is attracting enough of the Government’s attention during their Brexit negotiations. My alarm bells began ringing a number of weeks ago, when the Minister for Digital told the House that the Government were seeking “something akin” to an adequacy agreement. I had absolutely no idea what he meant then, and I am no closer to understanding now. “Something akin” to an adequacy agreement simply does not exist. An adequacy agreement is a formal legal position. It cannot be bent, moulded, or used as a quick fix to get a country, or a Minister, out of a sticky situation. The leading data protection lawyer Rosemary Jay said of adequacy agreements that the EU

“has to go through a legislative process. It is not simply within its gift to do it in some informal way”.

EU law is very clear: an adequacy decision can only be given to a “third country”— a country that is outside the EU and the European economic area—to allow it to operate securely and freely within the framework of the general data protection regulation, and an adequacy decision can only be given to a third country that meets the European Union’s high standard of data protection and whose domestic legislation is deemed compatible with the European Union’s charter of fundamental rights. The most obvious difficulty is that an adequacy decision is designed for third countries. The UK is not—yet—a third country, and it will not be a third country until the very end of the Brexit process.

There is a whole lot more to be considered. I cannot see how, without negotiating and securing a deal before leaving the EU, the UK can qualify for any sort of adequacy agreement, whether by default or otherwise. Even if the Prime Minister does secure a transitional period and is given time to sort out the UK’s adequacy problems, there is still no guarantee that adequacy by default will be achieved, because before granting an adequacy decision to a third country, the European Commission is obliged to consider a variety of issues such as the rule of law, respect for human rights and legislation on national security, public security and criminal law. That means that any deal that we reach with the EU will have to require at least a complete reworking—and, at best, a complete ditching—of the UK’s Investigatory Powers Act. In its present form, the Act leaves UK law incompatible with the charter of fundamental rights, which, as we have often heard, includes a chapter on the fundamental right to data protection.

On that basis alone, I am almost certain that the Act, which has already been accused of violating EU fundamental rights, will seriously call into question the UK’s ability to receive a positive adequacy decision. Eduardo Ustaran, a respected and internationally recognised expert on data protection, has said:

“What the UK needs to do is convince the Commission—and perhaps one day the European Court of Justice—that the Investigatory Powers Act is compatible with fundamental rights. That’s a tall order”.

The Government are understandably desperate to secure an adequacy decision by default or otherwise, but the harsh reality is that, at the very least, a lengthy and challenging legal process will almost certainly have to be undertaken before that can happen. That is why it is essential that the Government first secure the transitional period to keep the UK within the single market, the customs union and the jurisdiction of the European Court of Justice. We have to redraft the Investigatory Powers Act to make it comply with the charter of fundamental rights—if that is even possible, given the current form of the Act. Should that not happen, we will crash out of the European Union without a data protection deal, with all the devastating consequences that that would have for individuals and businesses.