Parliamentary Voting System and Constituencies Bill

Baroness Laing of Elderslie Excerpts

Tuesday 19th October 2010 Commons Chamber

[Mr Chope]

Exactly. I agree with the hon. Gentleman and my amendment attempts to mitigate the terms of the Bill, under which some people might have three, four, five or six votes. For example, somebody might put the BNP first and the UK Independence party second, and then vote for some other nationalist party or whatever. All those candidates would never get anywhere near the top of the poll, thereby making it possible for that person to cast a large number of votes. Thus, some people will get a large number of votes, whereas others will not; indeed, they will get only the one vote. One way of explaining the virtues of the first-past-the-post system is to say that it is one person, one vote, which is something that everybody understands.

[Mrs Eleanor Laing (Epping Forest) (Con)]

The hon. Member for Blackley and Broughton (Graham Stringer) made a good point about some people effectively having three, four or five votes. However, is it not the case that the meaning of the word “alternative” is “one of two”, from its true Latin derivation, “alter”? My hon. Friend’s amendment is therefore technically and linguistically absolutely correct. If the system is to be called the alternative vote system, the sense of “one of two” must come into it somewhere, not the sense of “one of four or five”.

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[Mr Harper]

It is difficult to start to get behind what is on ballot papers, and to analyse the amount of thought that voters put in to what they write on them. I am sure that all of us, when we have looked at the results of elections in our constituencies and council elections, have sometimes wondered what thought processes voters used in casting their votes. We have not always agreed with the result, but democracy is a wonderful thing; we give everyone who is over the age of 18 and who is eligible to vote the chance to do so. In a democracy, we have to take the results that we get and make the best of them, regardless of the amount of thought put into them. I will not try to psychoanalyse how voters will express their preferences and how much thought they put into them.

[Mrs Laing]

I appreciate that the Minister is trying to be very fair in how he and the Government draw up the system that might, if the referendum succeeds, come into force, but has he seen the carefully compiled scientific evidence that shows that alphabetical preferences do matter? The hon. Member for Great Grimsby (Austin Mitchell) is possibly joking—or perhaps not—about changing his name to A1 Austin. If that was his name on the ballot paper, and if I became Mrs Aardvark—nobody named Aardvark has so far asked me to marry them, but you never know—[Hon. Members: “Aah!”] Thank you. There is a distinct possibility that the alphabetical weighting would have an unfair, undemocratic effect on the result of the ballot.

[Mr Harper]

I am grateful to my hon. Friend for that point. I have seen the odd piece of analysis that says that even under the existing first-past-the-post system, it makes a small difference which end of the ballot paper one’s name is on. It really comes down to the point that I made to the hon. Member for Great Grimsby: I am not going to analyse how people reach their decisions. Some people reach them after careful, considered thought, and some people do not. We just have to live with the results of their decisions in a democracy.

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[Chris Bryant]

My hon. Friend has been making extremely sensible remarks on such issues ever since he and I were at university together, and he makes an important point now.

I say this to the hon. Member for Croydon Central (Gavin Barwell), who has intervened three times: changing the boundaries in the way that he suggests will not of itself make the dramatic difference that he thinks it will make. My argument on clause 8 is that there is a real danger that the boundary commissions will be unable to redraw every single constituency in the land with proper diligence and sheer impartiality using a mathematical equation. Of course, they can bear other things in mind, but not if a proposed constituency strays outside the mathematical equation.

[Mrs Laing]

Is the hon. Gentleman aware that the representatives of the boundary commissions for each part of the UK gave evidence to the Select Committee on that point, saying that what they will be required to do by the Bill can be done properly, reasonably and in a measured and correct way?

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[Chris Bryant]

Although you said it with a wry smile, Mr Gale, you make an eminently sane point.

My hon. Friend the Member for Blackley and Broughton (Graham Stringer) also makes a good point, which is that we are to do this every five years. In other words, between each election, every Member’s boundaries could be redrawn. That does not provide any political stability to constituents. It is already difficult enough for most members of the public to know who their MP is. It is one of the embarrassing things about the British political system that very few people know who their MP is.

I hate to refer again to the Rhondda, but it is probably easier for people there to know not the name of their MP—I am not asserting that—but that their MP is the MP for Rhondda, because they know that they live in the Rhondda. Most people do not know the name of their constituency, so when the MP for Middle Wallop comes on television, they do not know whether they live in Middle Wallop, Upper Wallop or Nether Wallop. That matters because it is about ensuring that MPs are not deracinated from the politics around them.

[Mrs Laing]

The hon. Gentleman is missing the point. The point is that all Members of the House elected to take part in the law-making process of our Parliament should come here with equal weight and represent an equal number of people, regardless of whether they are in Scotland, England, Northern Ireland or Wales, and regardless of whether they are from a mountain, a hillside, a valley or an inner city. It is the principle of democracy that matters.

[Chris Bryant]

I completely and utterly disagree with the hon. Lady. Of course one ought to strive towards equality in representation, but that is simply not the British way of creating the House of Commons. Historically, we said, “Okay, the shires need to be represented”, and consequentially the knights of the shires were brought into the first Parliament in the 13th century—incidentally, the only reason we know the names of any of those who first attended is that they presented their expenses chits and had them paid. Then we decided that the towns and villages needed representation, because the principle was that representation was based on communities—it was communities that were represented here. It was not just about the mathematical calculating machine system for deciding constituencies. There are countries that have used that system. The United States of America uses it for its House of Representatives. In fact, that is what led to the concept of gerrymandering—it was, I think, a Governor of Massachusetts, Mr Gerry, who was the first person to create a constituency designed to get him re-elected, and it was in the shape of a salamander.

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[Greg Mulholland (Leeds North West) (LD)]

I must start by saying that I did not know that the word “majoritarian” existed until now, so, as a politics graduate, I have learned something new. I rise to speak in support of amendments 341 and 342. I am pleased to say that they are, in parliamentary terms and in common-sense terms, remarkably simple. Amendment 341 would simply delay the introduction of new boundaries following any boundary review, whatever its findings, until after the next but one general election. That would mean that the next election would be fought on the current boundaries, and that the new boundaries—whatever they might be—would be introduced afterwards, in time for the election in 10 years’ time, if we have fixed-term Parliaments.

Amendment 342 relates to the regularity of boundary changes. Redrawing the boundaries every five years, for every Parliament, is simply not sensible. I am happy to support the principle of having more equal constituencies, but the proposals as they are now worded show no recognition of the reality of the process of introducing boundary changes. Every boundary review and change incurs a significant cost, which we should surely be concerned about in a time of austerity. They also cause chaos for the constituents of all hon. Members around the country, and for all the local authorities that have to work out the boundaries. Recently, I found out that one of my local pubs had been wrongly put into Leeds Central as a result of the latest boundary changes.

This illustrates the point of amendment 341. We introduced significant boundary changes for the election that took place just six months ago, and to ask the people of this country to understand why we are now going to redraw them again, even for a good reason, is simply not common sense. It is simply not acceptable.

[Mrs Laing]

I understand what the hon. Gentleman is saying, but he must accept that those boundary changes were based on figures collected almost 10 years ago. Also, does he accept the principle of the equalisation of the numbers of voters in constituencies?

[Greg Mulholland]

Forgive me, but I do not think the hon. Lady has been listening to my comments very well, because I just said that I supported the principle of having more equal constituencies. I support that aim, although I also support many of the caveats relating to common-sense, physical boundaries and to local determination which other amendments deal with. However, I support equalisation as a principle.

[Mrs Laing]

I was listening to what the hon. Gentleman was saying, and I am still listening, but he is contradicting himself. If he agrees with the principle of equalising the number of electors in each constituency, he must accept that populations move and that their numbers change, and that there must therefore be boundary changes. If he is simply arguing that they are inconvenient for the boundary commissions, I do not think his argument is very strong.

[Greg Mulholland]

I think the hon. Lady must be the only person in the Chamber who could possibly regard what I have said as a contradiction. I will tell the Committee who is inconvenienced by the boundary changes: it is the voters of this country, as well as Members of Parliament. There are constituents in this country who have been in four different constituencies in recent times. They simply do not know what parliamentary seat they are in, who their MP is or even who they will be allowed to support at the next election.

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[Greg Mulholland]

If the hon. Gentleman visited my constituency, he would understand why people not only would not want to leave but would want to move there in great numbers. [Interruption.] From a sedentary position, the hon. Member for Epping Forest (Mrs Laing) asks whether we do not need two Members of Parliament. Perhaps she is making the case for an English Parliament. As I have said, the English question with regard to devolution certainly needs attention.

[Mrs Laing]

Will the hon. Gentleman give way?

[Greg Mulholland]

I am willing to do so, although I suspect that you may not allow it, Mr Bayley. It is up to you to decide whether it is in order.

[Mrs Laing]

I thank the hon. Gentleman very much for giving way a third time. I had no intention of interrupting him at this point, but as he has put words into my mouth, I must ensure that they are not on the record as mine. I will advance no argument for an English Parliament, now or at any other time. What I was saying to the hon. Gentleman was that if many people came to live in his constituency—as he has just said that they might, because it is such a desirable place—the population would rise considerably, and it would need more than one Member of Parliament in order to have equal representation in the House.

[Greg Mulholland]

I am starting to worry that my acting as a tourism officer for Leeds North West may attract an undue influx of people to the constituency. I think a few would be good for the local economy, but if there is such an influx I will come back to the House and explain that we do have a real problem.

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[Mrs Laing]

We have been having the argument about registration across the Floor of the House for many years. Does the hon. Gentleman agree that the individual has to take a certain amount of personal responsibility in registering to vote, especially when individual voter registration is introduced—a measure brought in by his Government, with the support of the then Conservative Opposition? Does he agree that there is an element of personal responsibility, that sometimes people do not register to vote because they choose not to do so, and that they therefore choose to lose their vote, for whatever reason?

[Geraint Davies]

Clearly, we all want to encourage individual responsibility, and I think that there is an individual responsibility to try to register to vote. However, there is a propensity for certain categories of people not to vote because it is more difficult for them to do so. Examples include the one in five people in Britain who is functionally illiterate and finds it very difficult to fill in forms. And what about people who do not speak English very well?

We are about to move to the next stage, which is individual registration as opposed to household registration, and that will have a dramatic impact, particularly on ethnic communities, where there may be a lead member of the household who is the only person in the household who can speak English; in such cases, we may start off with five votes and get one. Some people might say, “It’s their fault; they should learn English,” and all the rest of it, but our law is that an eligible voter is an eligible voter, whether they are educated or not.

Through the amendment, I am saying that the boundaries should be drawn on the basis of eligible voters. Parallel to that, we want more registration, because the people who can vote are those who are registered. The point is that Parliament should represent the people. Poorer people should not be less well represented because they do not register as a result of failures in the education system, or for a host of other reasons.

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[Geraint Davies]

I certainly think that more resources need to be put in. More people need to be registered and to participate in the vote, but it remains the case that as we stand—as has been pointed out, not many resources have been put into this—there is a systematic bias against poorer areas in terms of the number of eligible voters being reflected in the number of registered voters. If we are going to make this massive change based on a numerical system of one size fits all, that numerical system needs to be rooted in the best estimate of eligible voters, not in the number of people who happen to have registered. As we go downstream with individual registration, my fear is that things will get worse and worse as groups of people who are not very literate and so on fall off the register because they are not being registered as a household. That will produce more and more of a bias.

[Mrs Laing]

The hon. Gentleman is being extremely gallant in giving way, because I have to answer the point made by the hon. Member for Clwyd South (Susan Elan Jones), who is sitting on the Bench almost beside him and has just accused me of saying something shameful. She is completely wrong and she took my words completely out of context, which is not normal parliamentary behaviour. I agree with every word that she said about individual responsibility resting also on Members of this House to ensure that people are registered. Of course we must, and it is wrong of her to call me shameful.

[Geraint Davies]

That was a strange intervention on my speech. The case that one would want to make is that we have an individual responsibility to register, but that we have to be cognisant of the fact that there is a bias in the rate of registration among different groups. With this amendment, which I would like to press to a vote tomorrow—if that is when we have the vote—I am calling for fairness in that sense.

I should declare an interest. My father, David Thomas Morgan Davies, was the secretary of the Boundary Commission for Wales between 1973 and 1984, so I have a particular interest in this area. Historically, it was always the case that the start point for drawing boundaries was equality in size and populations of constituency, adjusted for community and natural geography—rivers, seas and so on—and the needs of effective democracy. That is why we are where we are in Wales, for example, which stands, as has been pointed out, to lose a quarter of its elected representatives—the number will go from 40 down to 30. The real fear, as well as the points that I have made about the proportion of people from mining communities and other communities that are under-registered, is that we will lose out numerically and that communities will be merged—one valley with another, and with no geographical relationship between them—or that people will have to be in a constituency with a mountain in the way. In terms of effective democracy—devolution was mentioned—an Assembly boundary might be coincident with a parliamentary boundary, so that people can come to see me to talk about benefits and see the Assembly representative to talk about the health service. Now the boundaries will all be changed and then, every five years, changed again. The issue is one of effective democracy. How does the citizen know who represents them and which institution has a clear mechanism for doing so? These things have evolved into place over time and there is a risk that by superimposing a one-size-fits-all system based on the wrong calculus—namely, registered voters as opposed to eligible voters—we will end up with a much less effective democracy.

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[Graham Stringer]

As far as I can see, the hon. Gentleman has not been in the Chamber for most of the debate. I ask him to listen carefully to this and the next part of my speech. There are reasons why some people are not on the electoral register, but I can assure him that I check whether people live in the constituency and/or are on the electoral register, and if they are not, I try to persuade them to get on to it.

I was coming to the reasons some people are off the electoral register. It is not just a result of how well the registration officer does his job. Among poorer people, the number of people on the electoral register in Manchester declined by about 15% when the poll tax was brought in, because it was the single easiest way of avoiding tax. It has been 20 years since the poll tax was introduced, but the position has never recovered. I could take hon. Members to an estate in my constituency where nearly 60% of people on the electoral register are women. That is not because the estate is not roughly 50:50, but because the men living there do not register so as to get 25% off their council tax. It will take time to address that situation of people avoiding both tax and being on the electoral register. It is not an easy problem, but it should be dealt with.

[Mrs Laing]

If somebody lives in a house and is partaking of the services provided by the local authority, and it is known that they live in that house, and they do not register in order not to pay tax, they are not avoiding tax—they are evading tax. Is the hon. Gentleman saying that it is up to someone else to register them to vote?

[Graham Stringer]

I agree. The accurate word is “evading” not “avoiding”. I stand corrected. If people are evading tax, and therefore breaking the law, one cannot expect them to change. It is up to those bodies that enforce the law to enforce it. I am happy to clarify that position. Getting the electoral register to represent everyone who is entitled to vote is not a simple process. However, I am sure that hon. Members believe, as I do, that people should be registered and should comply with the law on being registered.

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[Austin Mitchell]

I am not sure whether the hon. Gentleman is trying to outdo my comic turn by putting me in the House of Commons well before I was actually here, but he is entitled to do that.

I am voluble now because of the threat to democracy that is implicit in this whole process. As one of my hon. Friends said earlier, that is what is waking up the Liberal Democrat part of the coalition. It is easy enough to organise a redistribution for 650 Members, but if there are only 600 pieces in the jigsaw, the implication is that every boundary in the country must be changed. That is what is waking up the Liberal Democrats, because they tend to win seats through intense community work and community politics involving cracked paving stones and late buses, and they must have a community to work to. That settled community will be disturbed by the redistribution, and the Liberal Democrats will lose seats. Their amendments suggest that they are now waking up to that fact.

It is a bit late in the day, but I can tell the Liberal Democrats that they will lose out. The AV part of the deal, which was supposed to benefit the Liberal Democrats while the redistribution was supposed to benefit the Conservatives, will not be carried, because it will be defeated in the referendum. Then the Liberal Democrats will ask themselves, “What have we got out of this coalition? We have abandoned all our faiths, we have sacrificed everything we believe in, we have allowed massive cuts to the detriment of British society—and what have we got out of it?” The answer will be “Peanuts. Nothing.” Their only resort, if they are to prevent themselves from being thrown out in the election following the redistribution, will be to throw out the Government and stop the redistribution.

I estimate that the Liberal Democrats will belatedly begin to wake up to that fact in about 2013 or 2014, and then they will become a disruptive factor within the coalition. I am trying to prevent them from ending up in that situation—[Interruption.] No, my heart bleeds for them. I am very sympathetic because it is tragic watching them betray their principles one by one in order to cling on to power and to get bums into ministerial cars and on to ministerial Benches—but if that is what they want to do, let them. I am trying to help them by persuading them to vote for amendments 127, 341 and 38. [Interruption.] No, I am a decent man. I would have voted Liberal in 1951, except that I did not have a vote because I was too young, but I wore a Liberal rosette on my meat round. That is the full history of my association with the Liberals—it ended in 1956 with the invasion of Suez—and now I am trying to protect them.

In conclusion, we should support these amendments in order to prevent the brutality of a process that would be damaging to British democracy and the community and that would create an unsettled situation for Members of Parliament. I spent many years in New Zealand, and we had much more regular redistributions when I was there—every five years, I think. That was before proportional representation came in. The seats could be made much more equal, but as a result of the changes no Member of Parliament knew five years ahead whether he would be representing the same area, or whether some bits would be shipped out and others would be shipped in because of boundary changes, and therefore the seat he would be representing would be totally changed. I want to prevent that situation from happening here. We represent settled communities that have clear boundaries, and we should not disrupt them in this fashion just for the electoral purposes of the Conservative party.

[Mrs Laing]

The hon. Member for Great Grimsby (Austin Mitchell) has just given the game away. He has at last revealed what this part of the debate is really about: the convenience of Members of Parliament, and the desire to make sure that they are not unsettled. This House should not be making laws for the convenience of Members of Parliament, however; we should be making laws for the good of the people of the United Kingdom. The hon. Gentleman has made many good points during the debate, and he has just made an excellent speech, albeit from his point of view—I disagree with him of course, but he always makes excellent speeches—but I am glad that he gave the game away at the end of his contribution.

While sitting through this lengthy debate, I have been wondering why so many Members have made illogical and inconsequential speeches. That is unusual for Members of this House—[Interruption]—especially those such as the hon. Member for Vale of Clwyd (Chris Ruane), who is laughing, and who has engaged in many debates on these subjects over many years. Why is nobody talking about individual voter registration, even though it is an integral part of improving the registration process?

[Chris Ruane]

I have just mentioned individual registration. We all know what it is about: it is about driving a further 4.5 million people off the register to join the other 3.5 million, in order to keep the Conservatives in office for another generation.

[Mrs Laing]

It is not; on the contrary, in fact. The last Government, with the support of the then Conservative Opposition, introduced individual voter registration and this Government have speeded up the process.

I am not going to take up much of the Committee’s time as we have heard many speeches on these subjects tonight and I have had the good fortune of being able to make many interventions in other Members’ contributions. In counting the number of people who are represented by each Member of Parliament we should count on the basis of democracy and the workings of democracy, not on the basis of social work. [Interruption.] Well, we all have several roles as Members of Parliament, and one of our roles is the pastoral one of looking after the people who live in our constituencies regardless of whether they are registered to vote, of their nationality, and of where they live. We are all decent Members of Parliament, and if someone comes to us with a problem, it will be dealt with—or it certainly would be in my constituency surgeries. I am sure that that is the case for almost everybody here. I see assent from Labour Members. However, we must separate those two roles, and that is integral to the point that we are discussing.

The hon. Member for Ealing North (Stephen Pound) may have thousands of people in his constituency who are not voters—who are either not eligible or not registered to vote. He therefore possibly has more casework, but that can be dealt with by giving him greater resources to deal with it. The issue should not be dealt with by distorting the democratic process and the way in which the Chamber works.

[Chris Bryant]

The hon. Lady knows that I respect her views in many regards, but I would find it phenomenally difficult to differentiate the two elements of our role—on the one hand, the representative function of a Member of Parliament in representing all the voters in their constituency, and, on the other hand, their casework. Many, if not all, of the issues that I have taken up in this House have come to me from my casework—apart, perhaps, from the issue of the Bill that we are discussing tonight. I urge her not to stray too far down the route of trying to separate out the two concepts.

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[Mrs Laing]

I am sure that the hon. Gentleman has brought before the House many matters that have arisen from people who come to his constituency surgeries, but he also has a role in raising points of principle on the subject of politics, the constitution and so on—I have seen him do so over many years—that are nothing to do with the casework that comes to him. I therefore do not accept his point.

[Stephen Pound]

I thank the hon. Lady for nobly offering, in a way that is typical of her, to support my special pleading to the Independent Parliamentary Standards Authority for additional staff. Together, we will be unbeatable. May I also apologise for perhaps inadvertently misleading the Committee earlier when I referred to Commonwealth citizens not having the right to vote? They do, of course, have that right. I am sure that the hon. Lady will have immediately spotted that I was referring to European economic area citizens, in the context of increased casework with no chance of a vote at the end of it.

[Mrs Laing]

Of course the hon. Gentleman is right. First, I do support his special pleading to IPSA. Secondly, I am glad to have given him the opportunity to put the record straight on the EEA; we are all better educated for that.

Our duty is not to try to amend the Bill to make life easier for Members of Parliament. What matters is not our certainty about where the boundaries of our constituencies will be drawn, but how the democratic process works. I have thought to myself, “Why have there been so many illogical arguments this evening?” I realise, of course, that it is because of special pleading.

[Tristram Hunt]

Does the hon. Lady recall, as I do, the evidence that we received on the Political and Constitutional Reform Committee, which suggested that where there were arbitrary and dramatic changes in boundaries, an absence of democracy often followed, as local party activists and local electors began to lose influence and interest in the local democratic process?

[Mrs Laing]

I recall the point being raised in the Select Committee, but I am afraid that I disagree with the hon. Gentleman on that point. The fact is—

[Mr Clive Betts (Sheffield South East) (Lab)]

Will the hon. Lady give way?

[Mrs Laing]

No. The hon. Gentleman has not been in Committee all evening, and it is time that we got on; this debate has taken too long. I would simply say that the reason why Opposition Members are arguing as they are is that they cannot in all honesty stand up in this House and say that the principle of equalising the size of constituencies is wrong. They are therefore manufacturing arguments against this Bill to try to stop this part of it. They are quite simply trying to avoid being turkeys voting for Christmas. They know that, and the hon. Member for Great Grimsby gave this away when he said that this is about certainty and uncertainty for Members of Parliament. The fact is that the only principle that should matter in considering this part of the Bill is the working of democracy. If Opposition Members do not have the courage to put their constituents and the people of the United Kingdom first and themselves second, they do not deserve to be Members of Parliament. It is the principle of equality that matters and that is what we must vote for.