European Union Bill

Charlie Elphicke Excerpts

Tuesday 25th January 2011 Commons Chamber

[Mr Lidington]

We would certainly want to avoid that and would look at the experience that the hon. Gentleman describes. It is important to recall that the principle of grants being made available for lead campaign organisations was recommended by the independent Committee on Standards in Public Life and approved by Parliament in legislation passed under the previous Labour Government in 2000. I hope that he agrees that it would not be in the public interest for one side in a referendum campaign to be able to outspend the other hugely. A grant ensures that both lead campaign organisations can campaign effectively and that helps the public make an informed choice.

I emphasise that the Bill is not intended to serve as a vehicle for providing for all the detailed referendum rules required to supplement the provisions already contained in the PPERA. That is because we cannot anticipate exactly what referendums might be required in the future, when they would be held or, indeed, what the relevant electoral and referendum law would look like at that time. I do not want to write on tablets of stone arrangements that could prove to be at odds with a subsequent change in general electoral legislation. Therefore, we cannot provide everything on the convening of those specific referendums in the Bill. Rather, it sets out the circumstances in which those referendums would have to be held.

[Charlie Elphicke (Dover) (Con)]

On the issue of who can vote in referendums, I notice that specific mention is made of the right of the people of Gibraltar to have a say in a referendum. It seems to me that they would like to be part of the United Kingdom for many purposes when it comes to European matters. Would it not be right to allow them more of a chance to have a say?

[Mr Lidington]

My hon. Friend makes a good point. Of course, we must look at the question of whether the franchise for a particular referendum should include the people of Gibraltar in the context of whether it would affect Gibraltar. As he will appreciate, although Gibraltar is in most respects treated as part of the EU, some parts of the treaties do not apply to it. It is therefore right that the Bill specifies that the electorate in a referendum should include the people of Gibraltar when the subject matter of that referendum also applies to them. To provide further reassurance, I call tell him that I have consulted the Chief Minister of Gibraltar formally and discussed the matter with him face to face, and he has assured me that he is content with the arrangements for Gibraltar as set out in the Bill.

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[Mr Lidington]

As my hon. Friend knows, the Government are considering how to comply with the Court’s decision. Article 3 of the first protocol of the European convention on human rights sets out the right to vote in elections. Importantly, that right extends to elections to legislatures, within the meaning of article 3, so we are not under an obligation to enfranchise prisoners for local elections or referendums, and the policy is that we will not do so. The Government accept the need, as did our predecessor, to change the law to give some prisoners the vote in the light of the Court’s judgment. The right to vote will be restricted to UK Westminster parliamentary and European Parliament elections only.

[Charlie Elphicke]

The European Court of Human Rights ruled on prisoner voting in, I believe, Hirst v. the United Kingdom. Despite what my right hon. Friend says, and given that case, how can we be confident that an element of judicial activism will not enable prisoners to vote on a referendum question?

[Mr Lidington]

My hon. Friend is perfectly right to be alert to any sign of judicial activism, but I assure him that one thing that will be very much on the mind of our right hon. and learned Friend the Secretary of State for Justice is to devise a policy that takes us forward in compliance with the judgment while keeping to the minimum the risks that my hon. Friend fears.

We recognise the need to ensure that Parliament and the British people have a degree of clarity now about any referendums that will take place under this Bill in future. We want to provide as much clarity as we can from the outset in order to reduce any scope for wriggle-room, and we therefore propose specific measures in this Bill to ensure that any referendums held under it are to some extent standardised. Clauses 11 to 13 include three mechanical provisions for every referendum to be held in future.

Clause 11 concerns the franchise for any future referendum held under the terms of the Bill. The most appropriate franchise for future referendums on questions of transfers of competence or powers from this country to the EU is one based on that for elections to this House, rather than on that for either local government elections or European parliamentary elections, for example. If we were to adopt an alternative franchise, we would allow for voting by citizens of other European Union countries resident in the UK, and that would sit rather oddly with the principle of having the British people decide on whether they wish to pursue further transfers of power from their country to Brussels.

[Mr Lidington]

I do not know whether this delights my hon. Friend, but peers would be able to vote in a referendum; it might well delight Members of the other place. The purpose of the referendum would be to obtain views about the transfer of competence or power from the UK to the European Union, and the Government do not consider there to be a strong, principled reason for excluding peers from expressing their views as part of such an exercise. We therefore propose the same franchise as that used for the European Economic Community referendum in 1975 and that which will be used for the referendum on the voting system for UK parliamentary elections, namely the parliamentary franchise plus peers.

[Charlie Elphicke]

One concern that I have about using the referendum mechanism is that it does not contain thresholds. Recently we had before this House a Bill, which has become jammed in another place, where thresholds were discussed. Does the Minister not think that, in the case under discussion, thresholds might surely be worth considering?

[The Temporary Chair (Mr Brady)]

Order. That is outside the scope of the clause, which is about people who are entitled to vote.

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[Mr Lidington]

Our position is that people who are resident in the United Kingdom and who are enfranchised for general elections will count legally as UK nationals for European purposes. That is the electorate, with the addition of peers, that we envisage for any referendum that is required under the terms of the Bill. The distinction that I tried to make earlier—I apologise to my hon. Friend if I did not explain myself with sufficient clarity—was between Gibraltarians living in Gibraltar, who would be entitled to vote if the subject matter of the referendum affected Gibraltar, and citizens of Crown dependencies or British overseas territories living in those places. An analogy might be made between those people and citizens of Gibraltar, but as I have tried to explain, the relationship of the Crown dependencies and other British overseas territories with the EU is very different from that enjoyed by Gibraltar.

[Charlie Elphicke]

I hate to press the cause of the people of Gibraltar, but I understand that for the purposes of elections to the European Parliament, the people of Gibraltar are able to vote for Members of the European Parliament for the south-west region. Given that they can vote in elections for that Parliament for all purposes in the European arena, surely they should be able to vote on referendum questions for all purposes.

[Mr Lidington]

No, I think that we have drawn a fair distinction by saying that it is right to confine the electorate for a referendum that does not affect Gibraltar to people in the UK who are entitled to vote in UK elections, and to say that Gibraltar should be allowed to vote when the issue in question affects it. I repeat to my hon. Friend that the Chief Minister of Gibraltar has assured me that he is perfectly content with what we are proposing.

The franchise proposed in clause 11 is also referred to elsewhere in the Bill, namely in clauses 2 and 3. I believe that what we propose is proportionate and justified to ensure that citizens in both the UK and Gibraltar who would be affected by a treaty change, or by a decision that would transfer power or competence from this country to the EU, could express their view in a referendum.

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[Mr Lidington]

No, in the circumstances that my hon. Friend describes, in which an omnibus treaty amendment is delivered under the ordinary revision procedure, there would be a single question. It would be ridiculous for the Government to present that to the people as a number of different questions, because the Government, on behalf of the United Kingdom, would have to ratify the entire package en bloc, or refuse to ratify it en bloc. The negotiation would have resulted in a compromise among member states on something to which they all felt able to give their assent, and they would all have to be accountable to their respective electorates for that overall decision.

[Charlie Elphicke]

On this matter of referendums being held on the same day, will the Minister explain the revenue implications of separate referendums on separate days?

[Mr Lidington]

As I said in response to an earlier intervention, if different decisions about treaty amendments were being taken at roughly the same time—I imagine that they would be either passerelle clause decisions or simplified revision procedure decisions—it might well be sensible to combine the referendums on those measures on the same day. The public would get pretty impatient with Parliament if we suggested that should they pop down to the polling station every other Thursday to put their cross in the box for yet another referendum proposal. They would quite rightly be asking why we were requiring their local authorities, as the electoral registration authorities—and ultimately them as taxpayers—to go to such expense and bother on so many different occasions. I would suggest to my hon. Friend that common sense would prevail, regardless of which party was in office.

[Charlie Elphicke]

rose—

[Mr Lidington]

If my hon. Friend will allow me, I want to make a bit of progress. In particular, I want to deliver a bit of good news to the right hon. Member for Belfast North (Mr Dodds), to whom I am always pleased to give good news. Advice has reached me that confirms the point that I made to him somewhat tentatively when I responded to his intervention. The law does indeed make it clear that when it comes to the interpretation of statutes, the singular can be interpreted to mean the plural. Under the language that we have used in the clause, it will be possible to have either one ballot paper with multiple questions or several different ballot papers, depending on the circumstances at the time. That would obviously be a detailed decision that the Government of the day would have to make, taking, I would very much hope, the advice of the Electoral Commission into account.

It should be noted that neither clause 12 nor any other clause in the Bill sets any other explicit parameters on the framing of the question. However, it is a condition separately in clauses 2, 3 and 6 that, for a proposal in a referendum to be passed, the majority of those voting should be in favour of the ratification of the treaty or approval of the decision, whichever it may be. That condition would logically require that the question be framed as a simple choice between two options, rather than a menu of options to which the responses would be much more difficult to interpret. In other words, it is implicit in the Bill that the question would be a binary one. It is the Government’s clear view that this should be the case for all and any referendums held under the provisions of the Bill.

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[Mr Lidington]

I go back to what I said earlier: I trust the people. If a Government wanted to ask people to vote again, they would have to go through the entire procedure again—assuming that a new protocol or slightly revised treaty wording were involved—as well as having to persuade a pretty sceptical electorate that they should change their mind. I think that my hon. Friend is at risk of exaggerating the likelihood of those circumstances arising. While I do not think that the loss of a referendum vote on a European treaty amendment should determine whether a Government should fall, it would undoubtedly be a very severe political blow to that Government.

Once this Bill becomes law, I think the pressure will be the reverse of what my hon. Friend fears, as the pressure will be on any British incumbent Government to be very confident that they can carry support among the electorate for a treaty reform transferring new powers or competences to the European Union before they agree to it at the European Council. The arrangements we are putting in place thus provide safeguards against what my hon. Friend fears.

In any event, the Political Parties, Elections and Referendums Act 2000 requires the Electoral Commission to consider the wording of any referendum question when a Bill to provide for the holding of a poll is introduced in Parliament. In the case of a draft instrument, the Secretary of State is required to consult the Electoral Commission on the wording of the referendum question before any such draft is laid before Parliament for approval, and he or she is then required to lay before each House a report stating any views as to the intelligibility of that question which the Commission has expressed in response to the consultation. We have not sought to disapply that requirement, as we think the Electoral Commission plays an important role in ensuring both the neutrality of the question and that it is correctly and easily understood by voters.

Under PPERA, the Electoral Commission is required to consider the wording of the referendum questions for UK, national and regional referendums and for some local government referendums. Having done so, it is required to publish the statement of its views as soon as practicable and in such a manner as it may determine. Helpfully, the commission has developed guidelines to aid the drafting of intelligible referendum questions. In these, it says that a referendum question should present the options clearly, simply and neutrally so that it is easy to understand, to the point and unambiguous; and should avoid—I hope this helps my hon. Friend the Member for Bury North—encouraging voters to consider one response more favourably than another, and avoid misleading voters. In reaching its conclusions, the Electoral Commission adopts a systematic and thorough approach, which now has the advantage of some considerable experience behind it. It is also important that it publishes a report of methodology to enhance transparency and its credibility.

Clause 12 is thus a proportionate and sustainable provision to ensure that the voice of the British people can be heard on each question asked of the people. That, in turn, will help us with our commitment to rebuild the trust between Government, Parliament and the people, and to reconnect our people with decisions taken in their name on our continuing relationship with the European Union. For those reasons, the clause should stand part of the Bill.

[Charlie Elphicke]

I want to make a few brief points and hope that the Minister will come back to me on them. I note that after the Scottish elections of 2007, the Gould report concluded that it was preferable for referendum questions not be done as a multiplicity, but to be put separately after separate campaigns. I am particularly concerned because there has been a tendency on the part of some Governments to play somewhat fast and loose on whether there should be a referendum at all or, indeed, in respect of asking loaded questions. We need to be careful to ensure that if there is a combination of questions, the key issues are not edged together and confused, leading to a muddle in the public’s minds. That is a serious and substantial concern, so I would be grateful if the Minister would respond to it.

Also, I was not being frivolous when I asked the Minister how much it would cost if referendums were held on separate days—leaving aside the annoyance that voters might feel in being called time and again to the polls.

[Mr Lidington]

On my hon. Friend’s second point, I do not have precise figures. Clearly, our experience of national UK referendums is limited—the last being in 1975, as the hon. Member for Caerphilly (Mr David) has frequently reminded us today. The referendum on the voting system planned for later this year will no doubt give us some guidance. I am happy to write to my hon. Friend if I acquire any firmer indication of what the costs might be. Clearly, there would be financial advantages in combining more than one poll, whether it be a combination of referendums or of a referendum and a local or devolved election on the same day.

Let me say in fairness to the Gould report, to which my hon. Friend alluded, that although it criticised what happened in 2007, it also recognised that there were benefits in the combination of polls, such as reduced costs and a higher turnout. A well-managed referendum, involving close co-operation between us and the Electoral Commission and others, should allow us to maximise those benefits while avoiding the problems that undoubtedly occurred in 2007. Let me emphasise again, however, that the decision would need to be taken in the future, and would depend on the circumstances at the time.

Question put and agreed to.

Clause 12 accordingly ordered to stand part of the Bill.

Clause 13

Role of Electoral Commission

Question proposed, That the clause stand part of the Bill.