Legislation (Territorial Extent) Bill
Debate between Chris Bryant and Malcolm Rifkind(13 years, 9 months ago)
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Sir Malcolm Rifkind (Kensington) (Con)
I congratulate my hon. Friend the Member for West Worcestershire (Harriett Baldwin) on what she has said today. This is an historic moment. West Worcestershire has taken up the cudgels on the West Lothian question, and I very much welcome her comments. I have taken an interest in these issues for a long time. I first entered the House in 1974, and when Margaret Thatcher became leader of our party, she was kind enough to appoint me as a junior spokesman on devolution. I have therefore had to take some views on these matters. I am now the Member for Kensington, but my primary home remains in Scotland, outside Edinburgh in East Lothian. Later, I will offer what might immodestly be referred to as an East Lothian answer to the West Lothian question.
I have no doubt that the consequences of devolution represent unfinished business. Over the past 12 years, we have witnessed the single biggest constitutional change in the United Kingdom since the Act of Union in 1707—
Sir Malcolm Rifkind
It was far more important than what happened in 1801, which turned out to be a blip in the constitutional history of the UK. What we are seeing now is a permanent change. It has not destroyed the United Kingdom, but it has undoubtedly created a new kind of United Kingdom. That has constitutional implications, as well as implications for fairness. I suspect that the hon. Member for Rhondda (Chris Bryant) would suggest that, since Stormont, we have lived with the fact of Members from Northern Ireland being able to vote on all the measures in this House despite the fact that their own constituencies might not be affected by them. There is a de minimis issue that we can sometimes live with, but we now have something quite different, particularly if the Welsh approve an extension of the legislative powers of their Assembly in their referendum.
We will have a situation in which not 11 but approximately 100 Members of this House from three of the four constituent parts of the United Kingdom will be able to vote on issues that do not affect their own constituents. There will be only one part of the UK that does not have that right. Rather curiously, having dominated the United Kingdom, by numbers, since the Act of Union in 1707, England will become the one part of the UK whose elected representatives do not, by themselves, have the final say on matters that affect purely their constituents. That will no longer be the case for Scotland, Wales or Northern Ireland, but paradoxically it will have become so for England. Talking about 100 Members, rather than 11, is not a minimal side issue; it goes to the very heart not only of constitutional propriety but of fairness. My remarks today will be about fairness rather than constitutions, because that is the fundamental principle of our political system, and the implications of these arrangements are significant.
We must not get this out of proportion, however. I do not believe that it is right to imply that, as a consequence of devolution, this place has effectively become an English Chamber because the Scots, the Welsh and the Northern Irish have very little continuing involvement here as a result of the big areas that have been devolved to their own Parliaments in Edinburgh, Cardiff and Belfast. That is a gross exaggeration. If we look at the whole scope of government, we see that the UK Government and Parliament still have either sole or predominant responsibility for massive swaths of policy. The most important issues facing any Government are those of taxation. At this moment, virtually all tax powers reside with the United Kingdom Parliament, and all Members of Parliament from every part of the kingdom have an equal interest in and responsibility for those matters. The largest budget of the British Government is the social security budget, and that is a United Kingdom budget. It does not differentiate in any material way between north and south of the border.
Sir Malcolm Rifkind
Yes, that is indeed one approach. We are always reminding ourselves that this country has a sovereign Parliament. The idea that a sovereign Parliament cannot determine that certain classes of legislation will not go through unless there is a double majority of the kind that I have described is absurd. Of course it can do that if it wishes; it is entirely within its power. It is simply a political judgment as to whether that is the right way forward.
I shall not speak for much longer, but I want to address one fundamental challenge that will be made—it has already been made—to any of the solutions that have been described. I have no doubt that the hon. Member for Rhondda will raise this suggestion. It is constantly said that the problem with all these approaches is that if a Government were denied the use of all the votes of their supporters that would usually give them a majority, the whole business of government would become unworkable and the Government would be unable to get their programme through, which would create some sort of constitutional crisis. To be fair, that argument is not made only by Labour Members. Mr Vernon Bogdanor, for example, who we are often told is a great constitutional expert, has constantly opined that that is a fundamental flaw in any such approach. Although I can understand why the Labour party adopts that view, because there is a political interest in putting forward such an argument, I find it very difficult to understand why such a learned gentleman has come to this conclusion—and I hope that he reads this speech.
Chris Bryant
The right hon. and learned Gentleman might like to know that Mr Bogdanor was the tutor of the Parliamentary Secretary, Cabinet Office, the hon. Member for Forest of Dean (Mr Harper).
Sir Malcolm Rifkind
I have no doubt that he was. Eric Anderson was the headmaster who taught Tony Blair, but I do not think that either could be held responsible for the other; each must come to their own judgments on these matters.
I come to the central point about the accusation that government would become unworkable. It is not just my view, my opinion or my theory that that is nonsense. We know from our own history that it is a ludicrous argument; it is exactly what happens every time we have a hung Parliament. When there is such a Parliament, as there was between 1974 and 1979, there will be many occasions when Governments cannot get their legislation through. It does not necessarily mean the collapse of the Government unless it is on some fundamental issue of confidence. What happens is that Governments either have to withdraw the proposal or discuss it with their opponents and table amendments to make it more acceptable. That is also exactly what happens between the House of Commons and the House of Lords from time to time. It is what happens in the United States all the time. The current President of the US does not have a majority in Congress, so he can never be certain of getting any legislation through. The argument that a British Government would somehow find themselves in an unworkable and unacceptable situation because not all but some of their English-only legislation was so controversial that a majority of English Members could not be persuaded to vote for it and that that would create chaos in the workings of government is manifestly ludicrous. That argument cannot be put forward in any credible way.
Chris Bryant
I think “Sceptical” might be the hon. Gentleman’s middle name. I see he is smiling—I have managed to get a smile out of him; that must be a first. He is now trying not to smile. Now he is laughing.
The only point I would make to the hon. Gentleman is that there is no academic evidence, and probably never will be. All that we have is anecdotal evidence. I merely offer my own evidence—I have not seen my work load diminish compared with that of my predecessor, who did not have a Welsh Assembly to contend with. The hon. Gentleman is right that a constituency with a smaller number of people might mean that the Member concerned has fewer people contacting them, but it might also mean that access to the Member for constituents is more difficult and that it involves considerable travelling around the constituency. Anyway, that is a matter for a different debate.
The right hon. and learned Member for Kensington referred to the issue of whether there should be an English Parliament. He is right to argue that there is a danger that we would end up with two Governments. Who would take possession of Downing street? Presumably, we would have a set of English Ministers, in addition to British Ministers, and so on. I am not sure that is the direction in which British voters want to go. The hon. Member for West Worcestershire referred to the fact that on the one occasion when we had a referendum on whether there should be devolved responsibilities within the English regions, people decided, largely because they did not want more politicians, not to go down that route.
In parenthesis, let me say briefly that I hear regularly, not from the right hon. and learned Member for Kensington but from others, that this is the mother of Parliaments. I again say that John Bright meant that England was the mother of Parliaments and that it was a very difficult and complicated birth. The effortless English superiority that sometimes arises in these debates is unfortunate.
The right hon. and learned Gentleman referred to Wales, and I was reminded of a story, which may not be apocryphal, of Charlotte Church singing before George W. Bush when he was President—a meeting of two great minds, obviously.
When Charlotte Church was introduced to the President, he asked, “Where are you from?” She said, “Wales.” He asked, “What state is that in?” , and she said “Terrible.” Discussions about issues such as this are not always informed by great intelligence.
The right hon. and learned Gentleman mentioned the possibility of an English Grand Committee. It has been suggested in the past that such a Committee should sit in the Chamber, because it would obviously have a significant number of members. During the last Parliament we discussed the possibility of regional Grand Committees and arguments were presented both for and against the idea, but it has fallen by the wayside.
I am not convinced by the right hon. and learned Gentleman’s argument in favour of a requirement for a double majority. Neither House has ever operated a system of secondary mandates.
Chris Bryant
It is true that innovation is sometimes a good thing, but I think that it would lead to confusion in this instance.
I am afraid that I am going to disappoint the right hon. and learned Gentleman now. He expected me to argue that a Government who lost a piece of legislation would fall, but I am not going to argue that at all. In fact, the danger is that as we move towards an elected second Chamber—and over the past few weeks we have seen both sides of the second Chamber behaving almost exactly like an elected Chamber—we will reach a point at which there will be absolutely no check on the power of the Executive. There will be no check by virtue of the time that the second Chamber can take to delay legislation, and no check in this House because, by definition, the Government have a majority. We may have to address that problem through the way in which we interpret the Standing Orders of the House.
Sir Malcolm Rifkind
The hon. Gentleman has been kind enough to say that he does not think that a double-majority requirement would create an unworkable situation for the Government. The only argument—in fact, it is not even an argument, but just a word—that he has used to indicate his reason for opposing such a requirement is that it would cause “confusion”. What does he mean by that?
Chris Bryant
I shall deal later with an issue that relates directly to the point of the Bill, and I think that the right hon. and learned Gentleman will then understand why I believe there is a problem. [Interruption.] He is now confused, but I hope that I shall be able to rescue him from his confusion in a moment or two.
As I said to the hon. Member for West Worcestershire, this is an age-old issue. There is a meretricious argument, which the hon. Lady steered away from today—although she dangled it in front of us a little bit—that it is patently absurd for Members whose constituents will not be affected by an individual piece of legislation to be able to vote on it. That is, at any rate, a paraphrase of something that she said. My response is “All that glisters is not gold.”
If we decide that Members can vote only on matters that affect their constituents directly—or even indirectly, I suppose—we end up with the question of who runs the country. At any one moment, on any one piece of legislation, there is uncertainty, and in the case of Finance Bills in particular there is a real problem. The issue is not just what the Government propose, but what Members can or cannot amend. Some money Bills have effect only in England, but the danger is that a money Bill could be amended in a way that caused it to have an implication elsewhere.