House of Lords: Working Practices

Lord Campbell-Savours Excerpts

Monday 12th July 2010 Lords Chamber

[The Chancellor of the Duchy of Lancaster (Lord Strathclyde)]

My Lords, we have a fine number of speakers on the speakers’ list this afternoon, and I welcome the opportunity of hearing the views of the many noble Lords who have set their names down for this debate. Others who have not will, no doubt, make their views known over the next few months.

A number among us think it may be time to review our working practices and, at the outset of a new Parliament, I share that view, which is why I proposed that this debate should be arranged. It is my intention that this debate should pave the way for a systematic review of our working practices to be conducted by a Leader’s Group that I will appoint before the House rises for the summer. I will ask the group to investigate what improvements could be made to our working practices to allow us to carry out our work effectively, while maintaining our efficiency in terms of the timeframes within which legislation is taken through the House.

That does not mean that I believe there are fundamental problems with procedure in your Lordships' House. Indeed, in the years I have been here, there have been times when I have contemplated ill digested legislation coming from the other place and reflected how much better the other place might operate if it introduced some of our own procedures. The privileges enjoyed by every noble Lord, the ability to table an amendment and have it answered, the wide freedom to speak and to question Ministers, the lack of restraint from the chair and other freedoms are immensely valuable to the House, and they are not shared by Members in another place. These open procedures enabled the House to carve out, after 1911, a role as the pre-eminent revising Chamber. Consider, for example, that over the last two full-length Sessions of the previous Parliament—2007-08 and 2008-09—we made on average over 80 amendments to each government Bill passed by this House.

As Leader of the House, I see it as my duty to defend that role and those freedoms. The essential self-regulating character of the House—rare in any legislative body—is something that I believe that noble Lords on all sides greatly value. Nothing this Government would suggest would set that at risk. I have never set my face against change; indeed, I was the other half of the conversation that led to the initiatives of my predecessor, the late Lord Williams of Mostyn, which resulted in some significant changes in the modern House, including the wider use of Grand Committees and the introduction of carry-over Bills. Furthermore, the House has regularly reviewed these matters—I need only mention the group set up by the noble Baroness, Lady Amos, in 2004, Lord Williams’s review or the Jellicoe committee of 1992—so it is time to look again at our working practices and consider ways we might refresh and improve the way we go about things.

However, we should not forget that one of the advantages of this House is that self-regulation allows us to adapt and change as we go along. Take, for example, the way we revise legislation in Grand Committees, which many of your Lordships rightly favour. After the Williams review, the number of Bills sent to Grand Committee, with full co-operation from the Opposition, rose from five in 2001-02, to 11 in 2002-03 and 18 in 2003-04. In 2005-06 there were 23, but since then their use has fallen away. In the past two Sessions, only six Bills have gone to Grand Committee, the same as in the last years of the old House in 1997-99. In 2003-04 and 2004-05, more than half the hours that your Lordships spent in Committee were spent in Grand Committee. In every year but one since 2003, the proportion of Committee time in Grand Committee has fallen from more than 50 per cent in 2003 to under a third in 2008-09 and less than 30 per cent in the previous Session. Yet the total number of hours spent in Committees of both types in our previous two full Sessions was more than 813, against 744 in the last two years of the old House and 404 hours in 1994-96. We are definitely talking more.

I use these statistics to show that our procedures are constantly evolving. It may well be that we should renew greater use of Grand Committees. The usual channels routinely consider whether the Committee stage of Bills could take place in Grand Committee, but the Leader’s Group could investigate whether morning sittings in the Moses Room might be introduced on Tuesdays and Wednesdays, for Bills or for other types of business. Then again, we already have procedures to send Bills for evidence-taking to Special Public Bill Committees or to Select Committees but, save for famous examples such as the Constitutional Reform Act, we have been sparing in our use of them. A Leader’s Group might consider whether that is right.

In the case of the Constitutional Reform Act, some who were most angered by the use of the Select Committee procedure, including the then Lord Chancellor himself, came to acknowledge its value. Indeed, our Select Committees have played a vital role in examining draft legislation, including secondary legislation, and scrutinising public policy. They have provided us with the authoritative analysis and advice that enables us to perform our scrutiny function effectively. On the other hand, wider use of these procedures would detract from the important principle that every Peer can contribute to revision and amendment at every part of every stage of a Bill.

In seeking to review how we scrutinise legislation, the Leader’s Group might also consider whether we could make better use of the minimum interval between the First and Second Readings of Bills. That interval could be used to invite evidence on Bills ahead of Second Reading, as some noble Lords have proposed, without prolonging the overall timetable for the passage of the Bill. The group may even wish to look at whether the case for minimum intervals of the length we currently observe is as compelling today as when they were introduced in 1977. The House has changed markedly since then, as have the technologies used to reprint Bills and Marshalled Lists of amendments.

Having re-examined its own practices, the other place is implementing many of the recommendations put forward by the Wright committee. Over time, they too might have an impact on this House, not least if legislation is more thoroughly scrutinised by the time it reaches us, so it is a timely moment for us to look at our own ways. In addition to some ideas that I have already mentioned, the group may wish to explore how we could ensure that, when scrutinising Bills that have arrived from the Commons, we focus on the provisions that received least attention in the other place. Some noble Lords have called for the provision of information on which clauses of Bills arriving from another place have not been subject to debate. I understand that this would not be as straightforward an exercise as it sounds, although I favour the idea behind it, but it merits further investigation.

There is much that a group might consider without extending the time that a Bill spends in this House. The Leader’s Group might wish to look at other areas of the House’s activity. It could, for example, examine how we might avoid duplication with another place when we repeat Ministerial Statements and Urgent Questions and consider whether the Moses Room would be a better venue for such matters. It may also wish to explore how we could ensure that our procedures are more transparent and accessible to Back-Benchers on all sides of the House, including those who have joined only recently or attend less frequently. This might, for instance, mean taking another look at how Private Members’ Bills are introduced and how Questions for Short Debate are tabled, with a view to widening the range of Back-Bench Members who successfully use these vehicles to raise matters of interest.

The overriding principle of self-regulation underpins all our work. The self-restraint that characterises this House has ensured that we have never needed to resort to selection of amendments, enforced groupings, programme Motions or guillotines. I sincerely hope that we never shall. We equally need to recognise that that would change if the freedoms that we have were unnecessarily abused. I am glad that they never have been, and long may that continue.

The usual channels are essential to this alchemy. They are a conduit for the different interests in the House and a vital lubricant in the conduct of business in a self-regulating House with no overall majority. I am conscious that there are some in the House who wish to see a greater role for the chair, notably at Question Time. My view is that our existing practice, whereby it is the responsibility of the whole House—of all the Members present—to draw attention to breaches of order or failures to observe custom, continues to serve us well. The government Benches of course have a special responsibility for assessing the mood of the House and intervening accordingly, and I take my responsibilities in this matter most seriously, as I know that former Leaders have done as well. It is not as easy as it looks perhaps and sometimes there are complaints of unfairness or favouritism to certain Benches. All I can say is that, on the anecdotal evidence, the party of the Opposition is hugely favoured in Question Time, but we are looking for the scientific proof to demonstrate whether that is the case.

This does not amount to a power of direction, and nor should it. Such powers, whether exercised from the—

[Lord Campbell-Savours]

The noble Lord did not refer to the Speakership in the context of work which might be considered by the Leader’s Group. I wonder whether he has a view on that.

[Lord Strathclyde]

My Lords, let me make it clear: I believe that it should consider that. It should be a widely drawn committee on working practices and not simply on the procedures of the House, so that it can examine all sorts of matters which are not strictly speaking procedural; that should, of course, include the role of the chair in the House.

As regards appointments to Select Committees—an aspect of the reforms in the other place which a number of noble Lords are keen to emulate—there is nothing to stop individual groups or political parties in this House from introducing elections for particular positions. Some have already done so, and I believe that it very much suits those groups.

I trust that this brief tour d’horizon has made clear that the Leader’s Group will have a wide-ranging remit. It will also have plenty of time in which to conduct its work, which I hope will culminate in a major piece of work that sets us on the right course for the years ahead. I hope that today’s debate will lend momentum to that process and serve as a reference point for the group in conducting its review.

There are many speakers and the debate will be wound up by my noble friend the Deputy Leader, who will also speak in his capacity as leader of the Liberal Democrat party in this House. All contributions are important in this discussion, including those from Members who will not speak today; I am sure that they will be invited to put evidence forward to the Leader’s Group. I beg to move.