Committee on Standards: Decision of the House

Chris Bryant Excerpts

Monday 8th November 2021 Commons Chamber

[Steve Barclay]

As I just set out, we are committed to working on a cross-party basis and we regret that many hon. Members did not feel that they had been sufficiently consulted on the proposals last week. I simply refer to the article in The Times by the Chair of the Standards Committee, who said:

“I’m sure we need to review both the code of conduct and the way it operates.”

He went on to say that

“there are good arguments in favour of a more formal additional process, whereby a member could appeal against the sanction either to an outside body or to a sub-committee of the standards committee”.

It was to that that the debate turned last week.

[Chris Bryant (Rhondda) (Lab)]

rose—

[Seema Malhotra (Feltham and Heston) (Lab/Co-op)]

rose—

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[Steve Barclay]

I did not see that the Chair of the Standards Committee was seeking to grab my attention. We are committed to working on a cross-party basis and, with that in mind, of course I will give way to him.

[Chris Bryant]

I am very grateful to the right hon. Gentleman and acknowledge the apology that he has given on behalf of the Government. None the less, the whole of Parliament is still in a bit of a hole. We still have a motion that was carried last week, which leaves the question of Mr Paterson’s conduct hanging in the air. Earlier today, I gave a draft of a motion that, were the Government to table it tonight, could be considered by the House tomorrow. I think that it would have the support of the whole House in clearing up the fact that, as you referred to, Mr Speaker, we have not actually decided whether Mr Paterson’s behaviour was inappropriate. I think the whole House now accepts that it was. Secondly, we have created a Committee which, I think, even the right hon. Member for Maldon (Mr Whittingdale), who is meant to be chairing it, does not want to be on any more.

[Mr John Whittingdale (Maldon) (Con)]

indicated assent.

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[Chris Bryant]

It would be quite a good idea if we could clear this up tomorrow before we go into recess. I hope the Minister will say now that he will table that motion later on today.

[Steve Barclay]

I have been very clear that we will listen to the House and listen to the debate. [Interruption.] Will the hon. Member for Washington and Sunderland West (Mrs Hodgson) just let me address the point made by the Chair of the Committee on Standards? Mr Paterson has now resigned, so it would not be possible for the House to endorse a sanction of suspension. I simply remind the House that he has suffered a serious personal tragedy. He has now resigned. In his statement, he said that he wants to continue his politics outside public life, and we should respect that. I hope, through your office, Mr Speaker, that there will be a way for us to engage on a cross-party basis, and that is what the Government will now redouble their efforts to engage on in the days ahead.

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[Chris Bryant (Rhondda) (Lab)]

Thank you, Mr Speaker. First, I want to congratulate the hon. Member for North East Fife (Wendy Chamberlain) on securing this debate. Secondly, I want to thank all the members of the Standards Committee. As the House can tell, we do not always agree on everything in the Committee. The hon. Member for South Leicestershire (Alberto Costa) is absolutely right to say that he has often raised process issues. I think he would also confirm that, quite often, the legal advice that is provided to the Committee by the House has disagreed with him very strongly. There are legitimate issues that we have to address, and that is why we are engaged in a code of conduct review. I take his points very seriously, and I have spoken to him many times on the phone, as he has said. He sounded a bit angrier with me in the debate just now than I think he really means. I am grateful to everyone on the Committee.

Let me start with a very simple point. I do not think we do ourselves any favours if we say that voters do not care about standards in public life. I do not know whether they care or not; I suspect that they do, but I do not know for certain and the opinion polls vary on this. We have always prided ourselves as a country on not being corrupt, unlike some other countries in the world, but that is not really the point. The question is not whether Mrs Jones at No. 32 cares about standards in Parliament; it is about whether we care about standards in public life and in Parliament. Every time we say that this does not really matter or that voters do not care about it, we give another excuse for bad behaviour.

I might also say that those of us who are MPs at any one time only hold our place here on trust. Sorry, this is going to sound a bit pious, but I think it is true none the less: we have a duty, not just to our constituents, but to the nation, and not just to this generation of voters, but to future generations of voters, to protect the reputation of Parliament rather than undermine it. Parliamentary democracy based on universal suffrage has not been around all that long; it has not even managed 100 years yet. It is a precious thing, and we need to defend it.

My second point is that independence is central to any standards system for the House. Anyone involved in a disciplinary process, either as a defendant or a complainant—we must remember that quite often there are complainants, many of whom are victims—needs to be completely assured that those involved in adjudicating the matter will always approach the decision with a fair and open mind, without fear or favour. That is what all 14 members of the Standards Committee seek to do.

That is why it is a breach of the code for any Member of the House to seek to lobby a member of the Standards Committee. We must be allowed to do our work without any interference. Sadly, as I have told you before, Mr Speaker, over the past 12 months I have been lobbied repeatedly by a significant number of hon. Members about their own or other Members’ cases. I have always sought to be polite, but extremely robust in response. I apologise if I have seemed rude, but this is an important part of maintaining the independence of the House and of the system.

The same applies to Whips. Some of my best friends are Whips—to get the confession in early—but I gently urge Whips to exercise a self-denying ordinance when it comes to Standards Committee reports, as has always been the case in every single instance in the past. Of course there are matters on which the Government have an understandable interest—matters of policy and finance—but it is inappropriate for anyone to whip House disciplinary matters. By definition, that turns our decision into a political one rather than a quasi-judicial one. Government should serve the House in standards matters, not the other way around.

The independence of the Parliamentary Commissioner for Standards is also vital. She must be able to get on with her work without being repeatedly attacked, briefed against, lied about, shouted at, bullied, threatened or generally undermined. I think I am quoting a former Government Chief Whip when I say that the recent campaign against her has been very unedifying. It has been worse than that—it has been cowardly and unfair.

I honestly think the Chancellor of the Duchy of Lancaster should have apologised not just for last week, but to the Parliamentary Commissioner for Standards. That would be the right, gentlemanly thing to do. May I, on behalf of, I think, the whole House, apologise to the Parliamentary Commissioner for Standards for what she has been put through in recent days?

I want to address the question of due process and ensuring a fair hearing. It is an important distinction that we on the Standards Committee are not a court of law. Indeed, there would be dangers if we were to become a court of law that we would all have to be legally represented. That might lead to a process that benefited the wealthy, who could afford lawyers, over those who could not. We are a Select Committee of the House, and sometimes we deal with matters that are really rather minor and that we would not want to bother a judge with, such as the use of parliamentary stationery.

I want to make it absolutely clear, however, as Speaker’s Counsel did repeatedly as we went through both this investigation and every other investigation since I have been Chair of the Committee, that we have bent over backwards to ensure that any hon. Member gets a fair hearing. Due notice of the charges has always been ensured, as has a full opportunity to put one’s case in writing and/or in person, a chance to make arguments in defence or in mitigation and the right to appeal the commissioner’s findings to the Committee. There is a right of appeal—it is an appeal to the Committee. Every lawyer I have seen comment on our process who has read the report has said that it was an entirely fair one, and of course we have taken legal advice throughout. Let me just quote from one—

[Sir William Cash]

rose—

[Chris Bryant]

I will give way, but before I do, let me say that the hon. Gentleman made a speech last week, and he has repeated this point today, about the additional measures available to us in the Standing Orders, but he should understand that those panels are there only where there are disputed facts. In this case, there were no disputed facts at all. So the point that I suspect he is about to make is completely otiose.

[Sir William Cash]

First, I would refer the hon. Gentleman to appendix 2, set out before the Committee by Mr Paterson. Secondly, let me make the simple point that when the Committee in 2003, which was composed of only three Conservatives, six Labour and two Liberal Democrats, decided on the investigatory panel, this was what was said:

“The proposal for an Investigatory Panel—

which is for serious, contested cases, as this one clearly is—

“is designed to deal with cases (expected to arise only infrequently) which…meet both the following criteria:

proof of the complaint would be likely to lead to the imposition of a serious penalty on the Member; and

there appeared to be significant contested issues of fact which would not properly be decided unless the Member was given the opportunity to call witnesses and/or to cross-examine witnesses supporting the complaint.”

The hon. Gentleman obviously does not agree with me on that, but the facts speak for themselves; there are seriously contested facts and they are disputed.

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[Chris Bryant]

I make two points. The first is that the hon. Gentleman basically just agreed with me wholeheartedly, because the whole point of these panels is that they are there only where there are disputed facts and there were no disputed facts in this case. The second point, where I would wholeheartedly agree with him, is that the facts speak for themselves—they certainly did in this case. Mr Paterson at no stage denied that he had engaged in the various different meetings with Government Ministers and officials. So I am afraid that the hon. Gentleman’s argument falls on both counts.

Let me just read the words of Thomas de la Mare, a highly respected lawyer at Blackstone Chambers, who reviewed this matter. He did not do so for the Committee; he has published this himself. He says:

“If the decision-maker has had the 17 witness statements, read them and rightly found them to be irrelevant there is no conceivable breach of natural justice in not calling them in…The idea that this pretty exhaustively conducted 2 stage case of inquiry by the commissioner and then full review by the Committee evinces a broken system or justifies the egregious step of changing the rules mid game is absurd.. All in all the Cmtee decision looks pretty bomb proof: balanced, fair once you understand how relevance of material works, carefully reasoned (and probably carefully lawyered) and the very appeal/review of the Commissioner OP”—

Owen Paterson—

“wanted. Given this what has happened next is tawdry”.

So what next? In the end, the Standards Committee exists only to serve the House and to try to protect the reputation of the House. First, we are already reviewing the code of conduct. There are perfectly legitimate arguments to be made about how we should change various different elements. MPs are now regulated by so many different bodies that it is sometimes difficult for right hon. and hon. Members to understand exactly what the rules are that affect them. I hate the idea that a right hon. or hon. Member will be tripped up by a rule that they simply did not understand through some inadvertent action. So I do want to make sure that we have greater clarity in the way that the whole of our code of conduct and guide to the rules is available to Members.

[Bob Seely]

The hon. Gentleman speaks with his customary eloquence, and he knows how much his speech was impactful last week. Are there specific issues that he would like to see improved or does he think that the current process is fundamentally sound?

[Chris Bryant]

I think we gave Owen Paterson a fair hearing; in all honesty, it is very difficult to argue that we did not. I have wracked my brain as to measures that we might evince, but I am only the Chair of the Committee and want to allow the Committee to come to a view on reforms that we might suggest, although I have suggested in the newspapers over the past few days a few things that I personally would like to see.

The important point is that we are reviewing the code of conduct, as we are required to do in every Parliament. We did not manage to do it in the 2015 or 2017 Parliaments because we kept on having general elections, so it would be great if we did not have a general election for a while so that we could finish our work on the code. It is worth saying that we published the terms of reference for our code of conduct review on 22 September 2020 and have been engaged in the review since then. We took evidence from the Leader of the House earlier this year.

There is an argument for improvements to some of the process. As the hon. Member for South Leicestershire knows, I personally favour clarifying what we do about appeals. There is currently an appeal, and a Member can appeal to the Committee on any basis whatsoever, whereas if we were to have a de jure appeal instead of a de facto appeal process, we would need a set of criteria against which a Member could appeal, which might actually restrict Members’ rights of appeal rather than enhance them. That is a difficulty that we have to deal with.

There is an issue in respect of whether a Member should be able to appeal against the sanction rather than the findings, and I am quite happy to listen to what the Committee eventually decides on that, as I am sure the House will want to do as well.

[Craig Mackinlay (South Thanet) (Con)]

rose—

[Chris Bryant]

I think the hon. Member came into the Chamber only recently, but if he has been present, I am happy to listen to him.

[Craig Mackinlay]

I have just been outside the Bar of the House.

The hon. Member is making a point about sanctions; I wonder whether this might be helpful. I am interested to hear that there is progress on a new code of conduct. If we put the specific case aside, does he appreciate that there is a world of difference between a sanction of nine days and a sanction of 11 days, for obvious reasons? Therein might be the reason for an appeal, because of the changes and outcomes that could flow from it that my hon. Friend the Member for South Leicestershire (Alberto Costa) so ably put forward.

[Chris Bryant]

I am not inimical to that view—there is a perfectly decent argument that perhaps there should be an appeal against sanctions—but in the Committee we try to stand by precedence, because otherwise we would be unfair. We list all the mitigating and aggravating factors in each of our reports and, at the end, come to a conclusion based on the precedents we have met. My suspicion is that any appeal body would do exactly the same, so I am not sure that it would necessarily change things, but there is an argument for bringing in such a thing. I note that the hon. Member referred to leaving this case aside, which is the most important thing for me: in the words of the Leader of the House, we cannot conflate one case with change of the system. In the end, that is the precise, polar opposite of justice: that is injustice and has brought the House into disrepute.

I have only a couple more points to make—

[Mr Baron]

Will the hon. Gentleman give way? [Hon. Members: “No.”]

[Chris Bryant]

Well, I like the hon. Gentleman, so yes, I will.

[Mr Baron]

I am grateful to the hon. Member, who is speaking with great eloquence, as usual, on this subject. I suggest to him that reform is a natural, evolving process—of course it is; no system is perfect—but, by and large, the system works quite well, so whatever the hon. Member does, will he make sure that it is transparent, as far as he is able to, and that it progresses as speedily as possible? What I take away from this debate and from last week’s vote is that the right thing to do is to let the Committee produce its recommendations and for the House to consider them in full debate.

[Chris Bryant]

I am grateful for that point. It is true that the right way for the House to progress, on a cross-party basis and with the advice of independent members of the public, is for us to complete our job of work, which we will have done by Christmas, I am sure, and perhaps even by the end of this month—I do not want to prejudge what the Committee will decide—and to publish that. There will then be an opportunity for the whole House to consider the matter. We would probably want then to produce a further report, which would be our final report on the draft code and its operation.

Incidentally, the current system has not been in place for very long. The mixture of the independent expert panel for ICGS cases and the Standards Committee has been in place, arguably, only since 7 January 2019 when the right hon. Member for South Northamptonshire (Dame Andrea Leadsom) introduced really important changes to the House, which were much valued by staff and Members across the House and by the public. In fact, the independent expert panel started its work only in January of this year, There is this idea that we should suddenly tear it all up and start all over again, but if I had only one thing to say to the House, it would be: let us just slow down. Let us consider this properly in the round, taking all the different issues together.

None the less, we do still need to tidy up what happened last week. I can see a lot of Conservative Members agreeing with that. I gently say to the ministerial team here that, if we want it, there is an opportunity for us tomorrow. We have two outstanding issues: one is the creation of the Committee, which the right hon. Member for Maldon (Mr Whittingdale) does not want to serve on, even though he is meant to be the Chair. I certainly hope that he is better from his covid.

[Mr Whittingdale]

indicated assent.

[Chris Bryant]

Secondly, of course, we all accept that Mr Paterson has left the House; he is no longer a Member. We cannot impose a sanction on him, as you said yourself, Mr Speaker, but, unfortunately, the House took a view on the report last week, which was basically to suspend it in mid-air. The motion, I suggest, would be a very simple one that we could consider tomorrow. It will be in all of our interests—the whole of the House —to get this sorted tomorrow. It would say that notwithstanding the practice of this House relating to questions already decided in the same Session, this House, first, rescinds the resolution and order of 3 November 2021 relating to the third report of the Committee on Standards (HC 797) and the appointment of a new Select Committee; secondly, approves the third report of the Committee on Standards; and, thirdly, notes that Mr Owen Paterson has been disqualified as a Member of this House. I think that would be in the best interests of the whole of the House, and then we could move forward.

One final point: we really struggled to create the ICGS and the independent expert panel. The right hon. Member for South Northamptonshire did a magnificent piece of work in trying to get cross-party support for all of that. We promised that the standards system would be independent, because that was the guarantor for the staff who felt that they had been bullied or sexually harassed. We cannot do anything that undermines that. Independence, fairness and justice should be the bywords not just of the Standards Committee, but of the whole of the House.

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[Marion Fellows (Motherwell and Wishaw) (SNP)]

First, I congratulate the hon. Member for North East Fife (Wendy Chamberlain) on securing this important debate. I have been a Member of the House for only six and a half years. I do not have an in-built affection for this place, its traditions or anything to do with it, but I do have an in-built sense of justice, fairness and how things should be done correctly.

It was an appalling day in the House last week and, unfortunately, I was acting Chief Whip of my party. I had to handle what was happening with the old boys’ network in this place and try to think on my feet—I do not think I acquitted myself terribly well. I do not want to go on about everything that has already been mentioned, but I have to say that one of my children was present in this House when the expenses scandal was on. I never thought I would be standing here speaking in any case, but certainly not about corruption, the old boys’ network and double dealing. I find it appalling.

What I have found even more appalling since last Wednesday is the attack on the commissioner for standards. It is absolutely egregious. Now, “egregious” was the word used of Owen Paterson, the former MP, because of what he did. It pains me that I am seen as a Member of this place when people think it is right to ride roughshod over the rules, to take part in bringing this place into disrepute and then to have their Government say, “Right, everybody on our Benches, vote for a new commission that we will make up and run.” That is not how any Parliament should be run. I find the Leader of the House to be a polite, affable gentleman, but I think he is squirming in his place today. He brought forward the motion last week, and he should be standing answering questions about why he did that and why it was in such ridiculous terms.

I said at the start I have been here only six and a half years. I do not want to be here much longer; I want to move to an independent Scotland. This kind of behaviour is not allowed in the Scottish Parliament. I do not want—[Interruption.] I do not want people in Scotland to think that because I am a Member of this Parliament, I would back such things.

[Chris Bryant]

To be fair, it is not allowed here either.

[Marion Fellows]

No.

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[Mr David Jones (Clwyd West) (Con)]

It is a pleasure to follow the right hon. Member for Dwyfor Meirionnydd (Liz Saville Roberts). The former Member for North Shropshire, the right hon. Owen Paterson, served his constituency for 24 years and held some of the highest offices in Government. By any standards, what happened to him is a tragedy: he lost his career but, much worse, he lost his wife in the most distressing circumstances. On a human level, there cannot be a Member of this House who does not feel at least some degree of sympathy for him.

I have heard the proposal of the Chair of the Committee on Standards on how to deal with Mr Paterson’s case, but in reality, the specific issue of his personal conduct is closed as a consequence of his resignation last week. However, his case has highlighted issues that deserve the continued attention of this House. In retrospect, everyone agrees that it was wrong of the Government to conflate the specific issue of Owen Paterson’s conduct with the important wider issue of the regulation and enforcement of standards in this House, and I was glad to see the Chancellor of the Duchy of Lancaster issuing what I thought was a very full apology for that.

What the case has thrown into focus are questions of natural justice that are not adequately addressed in Standing Orders Nos. 149 and 150. For example, Mr Paterson wanted to call no fewer than 17 witnesses to give evidence in support of his case, and he was not afforded the opportunity to do so. My hon. Friend the Member for South Leicestershire (Alberto Costa) has expressed his concerns on the issue of natural justice. For my own part, I find it hard to see how the denial of a right to call witnesses and for those witnesses to be examined and cross-examined—a right that is taken for granted in civil and criminal proceedings in this country—can be compatible with natural justice.

[Chris Bryant]

I do want to correct this point. We did hear the witnesses in writing. Their witness statements are all available online. We considered the matter. As happens in every single court in the land, we considered the matter, as judges would and as many tribunals would.

I would just say to the right hon. Member that he voted for a motion that, I am afraid, did not close the matter on Mr Paterson. It left it completely and utterly open—deliberately so—and, indeed, Mr Paterson still asserts that he is innocent and that, if he were a Member, he would do the whole thing all over again, so I am afraid we will have to tidy this up.

[Mr Jones]

I hear what the Chairman of the Committee has to say, but, frankly, it is one thing to read written evidence, and it is another thing for that evidence to be tested in examination and cross-examination, and that was not allowed.

Furthermore, there is no provision for an independent appeals process under Standing Order No 150. I do not believe that that can be right either. Provision should be made for a proper appeals procedure under the Standing Order No. 150 process, as indeed there is under the Independent Complaints and Grievance Scheme, where an appeal panel is chaired by a High Court judge.

There should also be greater legal input into the entire process. Standing Order No. 150 does provide for the establishment of an investigatory panel, with a legally qualified assessor and counsel, but only at the behest of either the commissioner herself or the Committee. That, of course, was not done in Mr Paterson’s case. Indeed, ever since the procedure was first put in place, no such panel has ever been established. That is a matter of regret because the legal assessor has a duty under Standing Order No. 150(10) to

“report to the Committee…his opinion as to the extent to which its proceedings have been consistent with the principles of natural justice”.

That is the only occasion in which the words “natural justice” appear anywhere in Standing Orders Nos. 149 and 150, which, I suggest, is also a matter that needs to be rectified.

In the debate last week, the right hon. Member for Orkney and Shetland (Mr Carmichael), whom I am delighted to see in his place, made the important point that, while he was sympathetic to the proposition that the rules do need reform, this could only be done with consensus. I believe that Mr Paterson’s case, despite its wholly regrettable outcome and, frankly, the way it was handled last week, has highlighted deficiencies in the process that do need to be addressed by the House. I very much hope that, now that the sting caused by the conflation of the individual case with the wider issue of the need for reform has been removed, the House can proceed on the basis of consensus and seek to make improvements to a system that, whatever the rights and wrongs of the Paterson case, is so clearly in need of reform.