Digital Democracy

Dai Havard Excerpts

Tuesday 10th March 2015 Westminster Hall

[Mr Dai Havard (in the Chair)]

Before we begin, I have a statement to make on behalf of Mr Speaker and the Chairman of Ways and Means. They have agreed, for the purposes of this debate only, that the public will be allowed to use electronic devices in the Public Gallery, provided that they do so silently and in a way that does not disrupt proceedings. That means that the same rules apply as apply to Members—so we will have no selfie sticks, or the rules of the Louvre museum will be applied. However, it is important that we do this properly. You are pathfinders this morning. You are trailblazers in this Parliament allowing the public to interrelate in the way that has been described: discreetly, with electronic devices.

I call Meg Hillier on behalf of the Speaker’s Digital Democracy Commission to open the debate.

[Meg Hillier (Hackney South and Shoreditch) (Lab/Co-op)]

It is a pleasure to serve under your chairmanship, Mr Havard. I am delighted to have secured this debate about the future of Parliament, because that is no less than what we were discussing for a year as a commission. As you have outlined, Mr Havard, this is a first for Parliament: the public in the Gallery are allowed to bring in mobile devices. We are encouraging them to tweet, text and share today’s proceedings with the wider public. The fact that that is a breakthrough shows how far behind Parliament is compared with the world outside.

Thomas Friedman said that in 2004

“Facebook didn’t exist, Twitter was still a sound, the cloud was still in the sky…LinkedIn was a prison”

and Skype was a spelling mistake. That does not describe the world that we all operate in today. If we look at the way in which Parliament works, we are some way behind that. The rate of technological change is rapid. We cannot control that, and when Mr Speaker set up the Digital Democracy Commission, he recognised that we need to embrace that. The commission has backed his view and agreed that we need to empower those who want to use digital resources to open up our democracy.

Mr Speaker set up the Digital Democracy Commission in January 2014. Made up of eight commissioners, including myself and the hon. Member for Harlow (Robert Halfon) as the two Members of Parliament on the commission, the Speaker was concerned that the world outside Parliament was leaving Parliament behind. He is absolutely right. Only last week, I was surprised to receive a phone call from Radio 4, who were keen to talk to me about a revolutionary change in Parliament: a new camera angle in the Chamber. Although that may be very exciting for the 650 of us who debate there, and for a few others, it is hardly the revolution that is going on in the world outside.

Mr Speaker set up the commission, bringing together a group of experts from technology, representation and the digital world. We heard evidence over that year, our method being very much our message, using online forums as well as traditional in-person evidence sessions. The commissioners were seeking out those who would not normally get involved. Famously, Helen Milner, the chief executive of the Tinder Foundation and one of my fellow commissioners, had a meeting above a chip shop. The chip shop owner even paid her staff to turn up, feeling that they would not come unless they were paid. By the end of that session, Helen, in her true missionary fashion, had persuaded a young man that voting was probably a rather good idea. That goes to show that, when the Digital Democracy Commission labelled our report “Open Up”, it was about opening up not only Parliament, but democracy as a participatory exercise, rather than just using technology to carry on doing what we already do.

In January we published our report—online, of course. A few rare hard copies are available—I am sure that they will be collectors’ items in future—but again, our method was our message. We made five headline recommendations. First, by 2020, the House should ensure that everyone can understand what it does. Secondly, by 2020, the House of Commons should be fully interactive and digital. Thirdly, the newly elected House of Commons, after the upcoming general election, should immediately create a new forum for public participation in the debating function of the House of Commons. Fourthly, in 2020, secure online voting should be an option for all voters. Finally, by next year—2016—all published information and broadcast footage should be freely available in formats suitable for reuse, and Hansard should be available as open data by the end of this year.

Those were our headlines, and I shall touch on two briefly before going into some in more detail. We talked about online voting, which was the headline that many picked up on, because we were all clear that that was the direction of travel. However, we were not set up to investigate in detail the issues of security and the mechanisms for delivering that, although we hope that the Electoral Commission and others will take that on. The hon. Member for Harlow will talk more about that recommendation.

We also called for an experiment, post the next general election, for what has been dubbed a “cyber Chamber”: a third chamber in Parliament allowing the public to debate an issue ahead of MPs having that discussion. As all MPs will have found at different times, often our debates can be best informed by an individual expert in our constituencies who finds us, approaches us and talks to us about an issue. We hope that the cyber Chamber will develop that expert contribution—by “expert”, I do not mean experts with letters after their name. Sometimes members of the public can be more expert about an issue that they have experienced than Members of Parliament. Again, the hon. Gentleman will speak more about that recommendation.

To turn to the rest of the report, overall, we see this as a road map to improve the way in which MPs engage with the public and to allow the public to better engage with Parliament. Within Parliament, we hope that the new director of the parliamentary digital service, Rob Greig, who joined only yesterday, will use the road map as his job description, as he continues the task of modernising Parliament in a digital way. We also adopted the declaration on parliamentary openness. I will not read that out for the record, but it basically talks about making parliamentary information more transparent and providing easier access to the public, which is the very reason why the commission was established.

--- Later in debate ---

[Meg Hillier]

I had the pleasure of attending with the hon. Member for Harlow an international conference at which we saw some very technical presentations about exact formats. I know that the House of Commons is embracing that approach. I am not the best technical expert to explain which exact format might be used, but perhaps I should lay out the current approach for the record. Websites such as TheyWorkForYou will screen scrape. They will collect data almost in a manual way from a website and then collate it, with an algorithm picking up things. That will never be perfect. That website does a good job, but it would acknowledge its own imperfections. However, if data are produced in a fully open way, in an open format, then algorithms and other mechanisms can be put in place so that information can be collected in a more intelligent and useful way for a member of the public. In effect, the intermediary stops being the lobby group and becomes the technology, but that intermediary between what is going on in this place and what the public want is much faster, sharper and snappier. Equally, it should also work the other way.

One challenge that hon. Members raised with me and, no doubt, with the hon. Member for Harlow while we were on the commission was this: “Won’t there be too many different platforms for us to use?” We will all have to address that challenge. I, for example, will be crowdsourcing which other social media platform I should be using to engage with my constituents. I hope that, through that mechanism, I will gain an idea of which one is most useful to them, rather than me alighting on a system, a social media platform, that is good for me but is not actually used by many of my constituents. It might make my life easier in some ways if I did not get interaction, but that is not what I am here for. I am here to represent my constituents, as we all are. It is important that that technological approach is taken, and certainly the House of Commons is on that track. The new head of digital has just arrived to take it forward. That that post has been created is a sign of the vision for where the House of Commons needs and wants to go.

As well as the digital side, we touched on the very big issues around improving public understanding of politics and Parliament. I think I have touched on that in what I have said, but one issue is about reducing jargon and making parliamentary language more accessible. This is an extraordinary situation. There is a member of staff in this building, working for an hon. Member, who is doing a major piece of research about the availability of “Erskine May”. Those of us in this place will know about “Erskine May”, but I would hazard a guess that most of us in the Chamber today have not seen or touched a physical copy of “Erskine May”. That is because there are very arcane rules about who has access to it and who owns it. There is a real desire— Mr Speaker has been leading the charge on this—to get it made available online, so that anyone out there who needs to look up any of the terms that we use can do that. That may sound a small step, but it is amazing that the rules of this place are held in bound hard copy, accessible to only a handful of experts. That does not help to create an open Parliament, which is one of the reasons why we wanted that to change.

We wanted to ensure that we are reaching out to under-represented groups. We touched on how to ensure that we do not leave behind those who are digitally excluded, because it is not our intention to do so. Just as with Government services that are going online, we need to be mindful of those who are unable to use that process. We see digital as enhancing and improving what we do, rather than replacing human interaction. We want to expand that human interaction to digital methods.

We wanted to look at elections and voting. A key issue internally is how we vote in Parliament. We had some interesting discussions about whether Members of Parliament should vote remotely online. The two Members of Parliament on the commission felt strongly that there was a big benefit to being in the Lobbies and being able to tackle Ministers such as the Deputy Leader of the House of Commons directly, face to face. If we lost that lobbying opportunity, we would feel that we had lost a large part of what we come to this place to do on behalf of our constituents.

The commission concluded that the current voting system is slow, clunky and manual. The House of Lords has been experimenting with using iPads to record voting. One of the benefits of recording voting digitally is that the results of a vote can be available immediately to the public and the media, whereas currently there is a time lag, because of the paper sheets that we use. I should explain for the benefit of those who are not Members of the House that as we troop through the Lobbies, there are three Clerks sitting in each Lobby with large sheets of paper and black marker pens marking off our names one by one as we go through. In the modern world, it is extraordinary that we still vote in such a way. We all have smart parliamentary passes, and it would not be difficult to install technology that allowed us to swipe through. That would enable the result to be relayed to the public quickly, so we could be held immediately to account for the way in which we had voted. I think that that makes great sense and so did the commission, so that is one of our recommendations.

We set quite stringent time targets. As the Speaker acknowledged, it would be generous to say that the House of Commons is living in the early 20th century; we are way behind in many respects. We wanted to force a drive for change and make Parliament and the House of Commons much more open and accessible. The report provides the foundations, but ultimately the public will make it happen. It requires people to be engaged and interested. When we asked the public which of the recommendations they wanted to see implemented quickly, the results were fairly evenly spread. Interestingly, online voting just pipped the others to the post as the favoured option for slightly more than 20% of those who responded to our survey.

We need tech developers to take the open data that will be available and turn it into something that will enable us to carry out our roles more effectively and enable the public to engage with us. When I am knocking on doors in Hackney on a weekend, I can talk to somebody in their kitchen, and I want to have that sort of interaction with everybody. None of us can reach everyone on the doorstep.

I want those who are passionate about an issue to be able to engage more effectively. I am a member of the Public Accounts Committee, and we get a lot of letters. They often arrive very late in the day, just as we are about to start a hearing or sometimes after a hearing. It is a great sadness to me that we have not got the capacity to absorb that information at a more appropriate stage. With the right digital support, those who are passionate will be able to get involved more effectively.

Many people are keen to get involved. Evidence from a survey carried out by Cambridge university showed that 46% of people would like to get involved if they could, but less than 10% are currently engaged with Parliament. Of course, there is a large gap between those who say they will get involved and those who actually do, but even if half of them did so, there would be a massive increase in the number of people getting involved in what we do. That would ensure that Parliament is the preserve not only of those of us who are elected, but of those who want to influence what we do.

As Members of Parliament, we need to be bold and embrace the change. We need to use social media and the opening up of Parliament as an opportunity to listen better to our constituents, not simply to broadcast what we do. If we embrace the Digital Democracy Commission report, proselytise and tell new Members about it, we will make ourselves more accountable and more relevant, and we will improve the work that we do in the House of Commons. That work is, ultimately, representing the best interests of the public and listening to their views.

[Mr Dai Havard (in the Chair)]

Before I call Mr Halfon, I would just like to say that I have a copy of “Erskine May” here. I am not sure whether it is meant to be a weapons system that I can throw at you if you are disorderly. It looks as though it has never been opened, although I can see that it has been, because there are markers at the page dealing with the maintenance of order during a debate—I think that that is probably what it is intended for—and at a page about disorder and the methods of curtailing debate. Mr Speaker and the Chairman of Ways and Means seem to give me the novelty or unusual discussions to chair. I want to take the opportunity to say that Mr Speaker is in the Gallery, which demonstrates his commitment to pre-legislative scrutiny and to any methodologies that can help with that process, as well as his commitment to engagement.

--- Later in debate ---

[Mr Allen]

Indeed. Dare I mention hon. Members who, like me, do not have the staff available at a particular time or who do not have relatives to help them? I have a young daughter to help me through difficulties when things seem to go wrong. I think many of us are excluded by our own incompetence, more than anything else.

Technology is often neutral. We need to use technology to give us a broader-based democracy and to involve more people. We should never, ever think it is a panacea. The problems with this place are about its relationship with the Executive and its inability to stand as an independent institution separate from the Executive. We must always consider how technology can help us as parliamentarians to build a stronger Parliament. That is what the Speaker’s commission has done. Once again, I congratulate my two colleagues on representing all of us in the House so effectively. More power to your elbow.

[Mr Dai Havard (in the Chair)]

The two Front Benchers will speak next. Could I ask you to share the time, please, so that Ms Hillier can have a couple of minutes at the end to summarise and talk about what might come through in future? Thank you.

--- Later in debate ---

[Meg Hillier]

I thank all Members who have contributed to the debate, as well as others who were unable to attend but are nevertheless very interested in the work of the Speaker’s Digital Democracy Commission. I also thank many others who contributed to the commission’s deliberations. I thank the commissioners, who gave up their time freely to make the report what it is, and, of course, Mr Speaker, who had the initial vision and chose a mechanism that was not over-bureaucratic to ensure that we could start this century, rather than wait for another 20 years. Thanks to him, we have made more progress over the past year than we would have done had we waited for Members to come round to the idea of discussing digital democracy.

I want to pick up on a couple of points that were made by both Front Benchers. The first was about citizenship education, which put me in mind of a visit I made on behalf of the commission to an international event in Montenegro to look at issues of digital engagement. Montenegro is a very small country that was part of the former Yugoslavia. Because most of the adults there grew up under communism, they were keen to teach their children about democracy. In very good English that in many ways put us to shame, the children explained to the delegates a workshop that they underwent to explain democracy to them and help them to understand it. That underlines the fact that although the commission looked at digital, we were really focused on how to use it to make engagement better. Digital alone is not going to solve the problem, as many have said.

The Deputy Leader of the House spoke about broadband. It is worth drawing the House’s attention to the House of Lords report that was most recently mentioned in this Chamber about a week ago. The House of Lords concluded that broadband should be seen as an essential utility. If we are really to tackle the digital divide, that must be a mission for whoever is in government after the election. I hope that we have cross-party engagement on that.

The Deputy Leader of the House also spoke about engagement, and rightly highlighted some of the progress that has been made, such as opportunities for the public to influence the early discussions on Bills, open evidence sessions and so on. The commission was really clear about one important reason why open data is so important: unless someone knows that such opportunities exist, they cannot get engaged. There is a danger that, because of how the House works, we tend to go to the same few lobby groups and people who have an expressed interest in a subject. We all know that there are silent, quiet experts in our constituencies who, given the opportunity, could really contribute to the work of this place. I cannot do my job without those people, and I am sure that the same can be said for other Members, so it is important that we give them the chance to get involved at the right moment. That is where open data can make a difference.

It would be fair to say that we are on the cusp of a revolution. The report discusses digital engagement, but we know that it is not a panacea. Nevertheless, it is a tool for better accountability for this place and for us individually. We must not let this opportunity pass. Mr Speaker had the vision, and the commission has done its work. We have agreed to meet formally in a year’s time to see how we are doing, and the House of Commons staff are doing their bit, with the new digital leader, who started work only this week, leading the way. Members and the people of this country must now embrace and deliver digital democracy. The report will only live if the public engage. We must say to them, “We open up this place and its proceedings to you. Please contribute. Take on our recommendations and make them live.”

[Mr Dai Havard (in the Chair)]

Thank you very much. Thank you also to those in the Public Gallery. This is the last time that I will chair Westminster Hall, so it is appropriate that we have discussed the future. The Panel of Chairs has been helping with related matters, so I thank those present for helping us to establish a netiquette—I think that is the word—for the future, in which the public can be involved.

The next scheduled debate will not take place, because the hon. Member who secured it is unwell. We wish him well in his recovery.