Fixed-term Parliaments Bill

Debate between Lord Falconer of Thoroton and Lord Foulkes of Cumnock

Monday 21st March 2011 Lords Chamber

[Lord Falconer of Thoroton]

My Lords, I will of course withdraw my amendment at the end of the debate because the purpose of debate at this stage was in order to probe and examine the arguments. The noble and learned Lord’s speech was well delivered but disappointing because it ultimately did not address the central argument being put against him: that the effect is to change our constitution, where there is a five-year maximum but the norm is around four years, to one where the norm becomes five years save in exceptional circumstances.

What everyone around the House was asking him was: why are you making this change if we have to make the judgment on what is in the best interests of good governance in this country? The Minister never answered that question at all but it is at the heart of the debate. This is not a party-political point. The reason that the noble and learned Lord cannot answer the question is that good old Mr Laws, in order to make it clear that the record should not be perverted in any way, has explained why it is five years. I do not know why the noble and learned Lord, who is an honourable man, is weaving and dodging on this. Just say, “They wouldn’t do a deal with us unless we agreed five years”. Do not try and make it something that it is not.

One of the other things that emerged so strongly from this very powerful debate was the sense that the more one talked about it, the more this House felt uneasy about being locked into this straitjacket that the Bill brings. I am in favour of fixed-term Parliaments, in the sense that I can see it to be appropriate that Parliament should in some way endorse what the Prime Minister has decided about an election. However, the Government are saying, “You have to choose between five years and four years”. I detected a real sense of unease around the House on this, but the Government are putting it that we have got to make this choice. Therefore, looking at the arguments, let us see which the best choice is. The noble and learned Lord himself said what the reason is that the Government are doing this.

Now, I cannot find my note. That would give my noble friend Lord Foulkes an opportunity to ask me a question, but I do not think that he wants to ask me any questions. I am sorry about that.

[Lord Foulkes of Cumnock]

My noble and learned friend is aware that I have just spent the last year of a four-year term in the Scottish Parliament. We happen to have been legislating right up to the very last day of that Parliament. There has been none of the kind of lassitude, or the feeling that the noble and learned Lord, Lord Wallace, described as an end-of-term—what word I am I looking for?

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[Lord Foulkes of Cumnock]

Yes, I mean lame duck; I knew I would get it eventually. I can tell my noble and learned friend Lord Falconer that one of the architects of the four-year fixed-term Parliament in Scotland was the noble and learned Lord, Lord Wallace of Tankerness.

[Lord Falconer of Thoroton]

How grateful I am for all that. I know that the Minister will have listened to it all.

To go back to my point, the noble and learned Lord is making us choose between five and four years, but the arguments that his Government put forward are all on the accountability side. That is what makes the case being advanced so absurd. Again, in the evidence that the Deputy Prime Minister gave to the examination of the Bill, he said in justifying it that,

“it is an unambiguous judgment on our part that reducing the power of the executive, seeking to boost the power of the legislature, making the legislatures more accountable to people ... collectively introduces the mechanisms by which people can exercise greater control over politicians”

How could he have been trying to justify the Bill as giving more accountability in a process that left the electorate with less ability to get rid of Governments, because there would be fewer general elections? What is so odd about the Government’s position is that they rely upon accountability and then propose something that produces less of it.

Parliamentary Voting System and Constituencies Bill

Debate between Lord Falconer of Thoroton and Lord Foulkes of Cumnock

Tuesday 1st February 2011 Lords Chamber

[Lord Foulkes of Cumnock]

My noble friend has made the point. What I was trying to say and I have been trying to say it in a number of contributions earlier, is that these polls will be far more complicated than we are led to believe by the Government and will cause lots of problems. I have no wish to exacerbate the problems; that is why I strongly support the suggestion of my noble friend Lady Liddell of Coatdyke that an all-party group should be set up to look at these schedules and identify any problems that might arise. That, surely, is us on this side being a wee bit helpful.

[Lord Falconer of Thoroton]

My Lords, Schedule 2 is important. The noble Lord, Lord Tyler, is right that it reflects experience from other elections. Looking at the 15th Marshalled List, Amendments 112A to 122A are specific amendments to Schedule 2, so I am not sure whether the noble Lord, Lord Tyler, was right when he said that there were no amendments to Schedule 2. I am interested in a number of specific issues that relate to the interaction between the referendum and other polls. First, in paragraph 13 (3), it is said that in England, Wales, Scotland and Northern Ireland,

“the polling station allotted to electors from any parliamentary polling district wholly or partly within a particular voting area must … be in the parliamentary polling place for that district unless the parliamentary polling place is outside the voting area”.

Why is the parliamentary polling area being chosen for a referendum and for the other votes when Parliament is not the district for the count, nor the place for which people are voting? I am surprised that that has been chosen.

Secondly, paragraph 22—this is for the referendum—places upon the presiding officer the,

“duty to keep order at the officer’s polling station”.

That makes the presiding officer the person responsible. Is it envisaged that the same presiding officer will be appointed for the local elections and the parliamentary elections? I assume that it is. If not, who is in charge of the polling station? Issues might arise in relation to the conduct of a polling station of the sort, for example, that arose at the end of the general election as to when to close the doors, or what to do about the queues. There needs to be some degree of certainty as to who is in charge. I assume that that will be achieved by the same person being appointed as the polling officer.

Thirdly, the schedule envisages a polling agent being appointed and a referendum agent being appointed. The purpose, as I understand it, of a referendum agent and a polling agent being appointed is that those two “agents” are responsible for seeking to prevent personation in the polling station. Is it envisaged that this would be two people, or is it envisaged that it would be one person for the same polling station? Do the same rules apply both in relation to electoral law on referendum voting and the polling voting? Can there be a conflict? Again, we would be looking for the same person to be appointed to deal with both.

The thing that I cannot find in the rules, though I am sure that it is here somewhere, is what prohibitions there are on material relating to the referendum within the polling station. For example, will it be permissible to have within the polling station the “neutral documentation” provided by the Electoral Commission describing the two sorts of system, or will that be prohibited? This relates to the question legitimately raised by my noble friend Lord Grocott regarding the extent to which help on the issues will be provided to individual voters. It is obvious that partisan material should not be provided but what, if any, material will be allowed in the polling station which is genuinely intended to assist voters? If the answer is nil, I would accept that and understand it, but equally I would not regard it as objectionable if neutral material prepared by a neutral body were allowed. It would be useful for the Committee to be given answers to those questions.

Parliamentary Voting System and Constituencies Bill

Debate between Lord Falconer of Thoroton and Lord Foulkes of Cumnock

Monday 31st January 2011 Lords Chamber

[Lord Falconer of Thoroton]

My Lords, Clause 12 is headed “Boundary Commission proposals: publicity and consultation”. I am interested in a number of questions in relation to whether there will be a change in the notification process as a result of Clause 12. The new Section 5 that Clause 12 inserts into the 1986 Act provides:

“Where a Boundary Commission have provisionally determined to make recommendations affecting any constituency, they shall take such steps as they see fit to inform people in the constituency … (a) of the effect of the proposed recommendations and … (b) that representations with respect to the proposed recommendations may be made to the Commission during a specified period of 12 weeks”.

First, can the noble and learned Lord give us some indication of what timetable the Government envisage for the first boundary review under the Bill, which has to conclude by 1 October 2013? When do they envisage that those provisional reviews will be published? Do they envisage that there will be one review for each country or region, or will the review apply to the whole United Kingdom—perhaps excluding Northern Ireland—all at once? I am particularly keen to know how the resources of those who may have to respond to those issues will have to be deployed.

Secondly, how do the Government envisage that there will be notification to the public of their right to make representations? This might be apparent if I thought about it more, but what is the effect of subsection (3) of the new Section 5? Will its effect be that, where there are new proposals, new Sections 5(1)(a) and 5(1)(b) will apply again with exactly the same time limits? If the Boundary Commission makes a provisional proposal that is then changed for whatever reason, will it be necessary to advertise the proposal in precisely the same way and will the commission need to advertise again that representations can be made?

Separately, do the Government envisage that the boundary commissions will each issue guidance on what they will do to comply with the new Section 5? If the boundary commissions will issue guidance, will that be in draft form so that this House can see it before the conclusion of Report so that we get some idea about how the new Section 5 will operate?

[Lord Foulkes of Cumnock]

My Lords, I am particularly pleased that we are making such great progress on the Bill. It is very encouraging to have had that earlier response from the noble and learned Lord, Lord Wallace of Tankerness, to the amendment moved by the Cross-Benchers. It was particularly encouraging that the noble and learned Lord responded and took the initiative, because earlier today I was reading a blog—strangely enough—belonging to the noble Lord, Lord Rennard, in which there appears a comment by the noble Lord, Lord Greaves, who wrote:

“There has been a potential (and sensible) deal available on this Bill for at least the past two weeks and the failure to clinch it is (in my view) mainly on the government side. The irony is that the deal has substantial Liberal Democrat support”.

I am glad that the deal has been clinched, and I am glad that it was the noble and learned Lord, Lord Wallace, who came here to do the clinching, as it were.

On Clause 12, although almost everyone in this debate has talked about “the Boundary Commission”, I remind the House—the noble and learned Lord, Lord Wallace, does not need reminding—that there is more than one such commission in the United Kingdom. Although England and Wales might have a combined boundary commission—I am advised that they have separate commissions, but that means that my argument applies a fortiori—there is otherwise a different boundary commission in each of the four countries of the United Kingdom.

On this matter, and on other matters, how are the Government going to achieve a measure of consistency in the work carried out in Scotland, Wales, Northern Ireland and England in relation to, for example, appeals? Following the passage of this Bill, will guidance be issued to the boundary commissions that says, “This is what we expect you to do”, so that the Government take the lead, or will the Government perhaps say to the chairs of the four commissions, “You should get together and work out a modus operandi for your areas”?

Obviously, local hearings are the important issue that we have been dealing with recently, but there are a number of other issues on which it would be invidious if one decision was made in Scotland and different action was taken in England. It could be that in entirely similar circumstances, an oral hearing was held in Scotland but not in England, or vice versa. It would be helpful if the Minister in his reply could put this into a United Kingdom context and talk about the collaboration and co-operation that he envisages among the boundary commissions.

Parliamentary Voting System and Constituencies Bill

Debate between Lord Falconer of Thoroton and Lord Foulkes of Cumnock

Tuesday 25th January 2011 Lords Chamber

[Lord Foulkes of Cumnock]

Seventy.

[Lord Falconer of Thoroton]

There are 70 in relation to the Scottish Parliament, so while they cannot be coterminous it must be sensible, as far as possible, not to try rigidly to make them coterminous but to have regard to them. I hope that the prescient words of the noble Lord, Lord Tyler, who said, “Shut up and listen and you might make some progress”, might mean that the noble Lord, Lord Strathclyde, will say that he will accept this amendment, because it seems sensible to me. Then we will regret not having followed the advice of the noble Lord, Lord Tyler, because it may be that talking too much has cost us the warm opinion and the change of the noble Lord, Lord Strathclyde.

Parliamentary Voting System and Constituencies Bill

Debate between Lord Falconer of Thoroton and Lord Foulkes of Cumnock

Monday 24th January 2011 Lords Chamber

[Lord Falconer of Thoroton]

I agree with the last point from my noble friend Lord Davies of Stamford. Increasing the figure to 10 per cent would make it much easier as a matter of practicality to do what the amendment would do, and the independent research that has been done by bodies such as Democratic Audit also suggests that that 10 per cent flexibility does not lead to unacceptable differences between constituencies that might be said to favour one party over another. We can achieve the purpose that the coalition sought to achieve and preserve communities in a way that most contributes to effective political activity.

I hope that the noble and learned Lord, Lord Wallace of Tankerness, who will be replying to this because he is completely alone on the Front Bench out of the team dealing with this, takes the amendment in the spirit in which it is offered and gives us a favourable response.

[Lord Foulkes of Cumnock]

My Lords, I want to make a brief intervention, encouraged by the very positive response from the noble and learned Lord, Lord Wallace of Tankerness, to the previous debate. We are talking about very much the same subject here. I make this intervention on one issue only: the question of political party organisation. This is, perhaps, a direct plea to the noble Lord, Lord Rennard, who I know is an expert on this. I think that he told us on one occasion that he became secretary of his local ward party at the age of seven. He has moved onwards and upwards ever since.

When we are talking about trying to get boundaries as coterminous as possible, we are not just talking about community cohesion—although that is important, as my noble and learned friend said—about trying to reduce the public’s confusion over who their elected representatives are or about keeping to a minimum the number of local authorities or health boards that MPs have to deal with. It is also vital in relation to political party organisations. Political parties are absolutely essential to democracy. When I go around in seminars organised by the Westminster Foundation for Democracy, I explain to new democracies in eastern Europe and north Africa—I have been to Macedonia and to Egypt to talk about this—the importance of having active political parties with good organisation.

The experience in Scotland has been that, because in both Ayrshire and Edinburgh, the two areas that I know best from a constituency point of view, we have ended up having different boundaries for the Scottish Parliament and the UK Parliament—the noble and learned Lord, Lord Wallace, was lucky in this, because Orkney and Shetland have been given special treatment on so many occasions—great difficulties have been caused in terms of party organisation. It really has confused people and made things more difficult.

The kinds of things that are difficult are, for example, fundraising activities. As my noble and learned friend Lord Falconer said, political parties are run by volunteers. When you get them in, they are not paid in most cases, apart from national organisers, but they are the ones organising the coffee mornings. At this time of year, we should perhaps think as well of the Burns suppers that are taking place to raise money. There are Labour Party Burns suppers around the whole of Scotland at the moment. All those kinds of activities are much more difficult if you have different party structures. If you have to have a ward structure or a local liaison group for another party organisation, as we have in Scotland—we have a CLP and a regional party structure—it makes things very difficult. People can spend hour after hour organising just meetings and minutes for meetings. They are trying to get things organised within their party structures rather than doing the fundraising.

Parties should also be involved in political education. We should be having much more political education run by the parties, getting young people in and getting them to understand what democracy is about, as well as what our parties are doing. It is therefore vital that we should not strangle or snuff out this voluntary political activity by a complex overlapping of boundaries. That is why I hope that the noble and learned Lord, Lord Wallace, will be as sympathetic to the proposal in this amendment as he was to the previous one.

Parliamentary Voting System and Constituencies Bill

Debate between Lord Falconer of Thoroton and Lord Foulkes of Cumnock

Thursday 20th January 2011 Lords Chamber

[Lord Falconer of Thoroton]

It is pretty clear what my noble friend Lord Foulkes of Cumnock is trying to do. It is pretty far reaching and I do not think, frankly, that it is sensible.

[Lord Foulkes of Cumnock]

Thank you.

[Lord Falconer of Thoroton]

I say that with the greatest respect. As I understand it, Amendment 67C proposes that every constituency shall be in either Scotland, Wales, Northern Ireland or England. The words,

“together with the home and overseas dependent territories”,

mean either that a constituency also has to be completely within the home or overseas dependent territories, or that when you add the people to a constituency in Scotland, Wales, Northern Ireland or England from the home or overseas dependent territories, that constituency is wholly in one of Scotland, Wales, Northern Ireland or England. It leaves open the question of how you identify the people from the dependent territories, whether by connection with a constituency in the UK or by reference to their dependent territory.

The current position is that if you are from a home or overseas dependent territory and you are resident in the UK, and you have either leave to remain or do not require leave to remain, you can vote in a UK general election. What my noble friend is in effect suggesting is that we should by this Bill, without consultation and almost certainly against the wishes of the majority of most of the members of the home and overseas dependent territories, absorb them into the United Kingdom. The current position is that while many of them have allegiance to the Crown, they are not governed by our Executive or our Parliament. From my experience—I was the Minister responsible for the home dependent territories for a considerable period—they would be outraged by the suggestion of such a change being made in this way. I know that my noble friend wished only to raise a debate on this matter but from their point of view—they will read Hansard—it is absolutely critical that we make it clear what the effect of the amendment is, and I make it completely clear that we on this side of the House oppose it.

Parliamentary Voting System and Constituencies Bill

Debate between Lord Falconer of Thoroton and Lord Foulkes of Cumnock

Monday 10th January 2011 Lords Chamber

[Lord Falconer of Thoroton]

I sat on the committee with the Speaker in which we discussed those matters, and I remember the setting up of the informal committee. Since then a Bill has been passed which allows former politicians to sit on it. Happily, your Lordships have answered all the questions so I have not been put in the embarrassing position of doing that which I am not allowed to do, which is to press the noble Lord, Lord Tyler, because he is supposed to be pressing me in the course of this debate.

I have set out the reasons for this amendment. It is a very important amendment because it requires a justification as to why it is two and a half years, why we should not wait for an up-to-date register, and why gaps of five years are suggested. Those are the questions that this amendment raises. I beg to move.

[Lord Foulkes of Cumnock]

My noble and learned friend is absolutely right that this is a very important amendment. It is double-barrelled in that it deals with two things. It deals with the redistribution to make sure that it is based on the real number as near as possible of people eligible to vote in a constituency, and it encourages people to register and to vote. It is important from the point of view of the redistribution of boundaries, but it also has a wider and more beneficial effect.

For the first aspect of this, I have an amendment, Amendment 89C, which I hope we will come to later this evening. I hesitate to say that it is better than my noble and learned friend’s amendment, but it is simpler because it just says that,

“for the purpose of this Act”,

the electorate will be taken as the number of people eligible to vote, not registered to vote. We can always find out the number of people who are eligible to vote through the census or whatever. I hope, in anticipation of that—which is why I am giving the Minister a bit of extra notice—he will look at his briefing. It is a simpler amendment and I hope it is one that the Government might accept.

However, my noble and learned friend’s amendment has the double advantage of getting people on to the register and, as my noble friend Lord Desai said, encouraging people to vote. There are lots of ways of doing that which we have discussed previously. One of those is compulsory voting. A number of colleagues were a bit doubtful and unsure about that, and with good reason. I say that because I have just been reading about the compulsory vote in Belgium, but because that country has a daft proportional representation system, which my noble friend Lord Grocott will particularly appreciate, it has not been able to form a Government for seven months, and the guy who was appointed to mediate between the various parties in order to try to get a government has just resigned. That is the sort of thing that happens when you have daft systems of proportional representation. Someone asked me who is running the Government in Belgium, and I said that I supposed it was the civil servants. They answered, “What’s different? Doesn’t that always happen?”. I hope that is not the case, but it is worrying that you can get to that position even with proportional representation and compulsory voting. You would think that that might improve the situation.

Parliamentary Voting System and Constituencies Bill

Debate between Lord Falconer of Thoroton and Lord Foulkes of Cumnock

Monday 20th December 2010 Lords Chamber

[Lord Falconer of Thoroton]

In Northern Ireland, there is a problem with individual registration. Eventually it should improve the accuracy of the register, but it will take some time in relation to it, and household registration tends to involve more people being registered than does individual registration. We introduced individual registration because we did not like the idea of it being the head of the household who determined whether or not you got registered. My noble friend Lord Beecham is right in saying that because that measure might reduce the number of people registered, the consequence is that you need more effort on the part of the electoral registration officers to ensure that things keep up. Ultimately, you cannot—if the claim is fairness—say that it is fairness in relation to this one aspect but not to another.

If the position of the coalition is that it will not introduce AV, even if 99 per cent are in favour, until the Boundary Commission has reported, why will it not also accept our condition, which would have a fundamentally galvanising effect on electoral registration? It would mean that the Government of the day had the highest possible motivation to ensure that there was proper registration and that the sorts of problems to which the Electoral Commission has referred would be dealt with. This is how to make a difference in this regard.

I await the noble and learned Lord’s answer as to why, if at all, this proposal would not and should not be introduced. It is a wholly good thing, which would improve our democracy and would, most importantly, bring into our democracy people in black and minority ethnic groups, which are perhaps the groups that feel most alienated and excluded by it at the moment. I beg to move.

[Lord Foulkes of Cumnock]

My Lords, I support my noble and learned friend Lord Falconer on the basis that, if the boundaries are to be reviewed, the numbers should be as accurate as possible. First, however, I did not agree with what my own Government did in relation to changing the arrangements for registering for elections. I thought the head of the household system was far better than individual registration, and far more likely to ensure that more people were registered. I am worried about the effect that it will have when we move on to individual registration. I think that 17 or 18 year-olds are less likely to fill in forms, whereas the head of the household could ensure that all of the people of voting age were registered. I think it is a pity that we have moved in that direction.

However, the introduction of the rolling register, as the noble Lord, Lord Rennard, said, has significantly improved the situation. More and more people are registering now instead of having to wait for one particular date to register. That has been a great improvement.

My noble and learned friend Lord Falconer said that the numbers could be more accurate if an effort was made—I want to come to that point—to make sure that people are registered. He mentioned that two of the areas in which there was the lowest registration were Lambeth and Glasgow—he mentioned Glasgow in particular. I draw to the attention of the House what happened in Glasgow over the few months up to the end of November. Because the problems of under-registration were causing concern to MPs in Glasgow, they asked the leader of the council, Councillor Gordon Matheson, to carry out an exercise of going around the city to see if people were not registered who ought to be. During the course of just a few months, nearly 36,000 extra voters were registered. That is an astonishing number. If that was carried out in every constituency, in every city, and in every county, then we would get a much more accurate picture of those people who are not now registered and who ought to be.

I have raised this in the context of other areas, and I have been told that it is too late now to get registered if the timetable in this Bill is adhered to. I would be grateful if the Minister could confirm whether that is the case and whether we could ask each council to undertake the kind of exercise that was carried out in Glasgow.

If it is too late, then we need to consider alternatives, but if it is not, we should be getting MPs to encourage councils to carry out this kind of exercise. Before my noble friend Lord Rooker raised it, I, too, had written down the question of the census. That is another opportunity to gather a more accurate picture of those who are eligible to vote. It would be helpful if, in his reply, the Minister would indicate whether it is possible to get the census enumerators, as they go around, to ask an additional question, about registration —the names of the people in the household over 18 or those who will attain the age of 18 by a particular date. They could hand forms out when they are going around, or leaflets. That is my order of preference—to get them registered and take a note of it, then to give them a form and, failing that, to give them a leaflet. That would help.

I do not want to hold back the House unduly regarding this, but one of the things that has been noticed, and this has been said by some other colleagues in previous debates, is that it is funny seeing the two former Chancellors on the Benches opposite. It is a bit like the characters in the gallery on “The Muppets”, sitting there commenting on events.

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[Lord Falconer of Thoroton]

I do not know why the Government are behaving in this way. It does not matter to me whether they are Labour or Tory seats. The noble and learned Lord, Lord Wallace of Tankerness, was absolutely clear—I accept his sincerity in this respect—that he was indifferent to the political hue of the seats and that this was the matter that needed to be dealt with. This is the way to deal with it. That is why the answers that have been given are so surprising. I hope that, if the noble Lord, Lord Strathclyde, is answering, which I deduce is the case because he floated to his feet before I had an opportunity to make my speech, he will deal with that.

[Lord Foulkes of Cumnock]

I am deeply grateful to the Government Chief Whip for providing this extra time for us to debate Clause 8. I am glad to see that the noble Lord, Lord Deben—the artist previously known as John Selwyn Gummer—is here, even though he has moved conveniently to another part of the Chamber. He was concerned that some of us—although I have been here for five years now and have become sort of institutionalised in this place; the noble Lord joined us relatively recently—had imported habits from the other place. I shall try to explain to him and others why some of us here who were in the other place—in my case, it was for 26 years; a number of other Members were there even longer—are deeply concerned about what is happening. This clause is the fulcrum, as someone said earlier, of that.

Perhaps I can explain it better another way. I go around now to different countries as a member of the board of the Westminster Foundation for Democracy. We talk to it about the Westminster system, our system of democracy and control, and the way in which we have checks and balances and parliamentary control of the Executive. The noble Baroness, Lady D’Souza—I call her my noble friend—was on the board with me for a number of years, and prior to that, and played an excellent role. She will remember all our discussions.

If the Bill gets bulldozed through, can we still go around to these countries and say that we are the greatest democracy in the world, the epitome of democracy, and that this Westminster system is the one to be held up for others to follow? We saw the Bill of 300 pages hugely amended in the House of Commons—I do not think that it was 300 pages when it started—with lots of amendments put down, lots of clauses never properly scrutinised, and great faith put in the drafters, the civil servants. After five years working with civil servants, I am always very cautious about putting total faith in their drafting, but no doubt Ministers think otherwise.

The noble Lord, Lord McNally, has put down dozens of amendments in this House which are going to have to go back; huge changes have taken place. The Bill was guillotined in the Commons. They did not consider it in every detail. They did not think: is this right, what are the implications, are there any unintended consequences to this, are there any implications for anything else that we are doing? They did not consider whether there were any implications for fixed-term Parliaments and reform of the House of Lords, as I said in an earlier debate. They did not consider that. Now there is the suggestion that we are not going to be able to consider it properly here. If that is the case, it will have gone through two Houses of Parliament without proper, detailed consideration.

Take other countries, such as the United States of America. It is not perfect in any way, but it has two democratically elected chambers—the House of Representatives and the Senate—the President taking part in terms of legislation, while the Supreme Court provides an opportunity to consider whether there is anything that infringes the constitution of the United States. We do not have those checks and balances here; we are rushing the Bill through.

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[Lord Foulkes of Cumnock]

Absolutely. That is why I do not support this system. The reason I support the amendment is because it makes the alternative vote system look so ridiculous that we come back to first past the post.

[Lord Falconer of Thoroton]

My Lords, one can only think that this is like Heathrow at the moment. First we are told by the Government Chief Whip that we are going to go on till taxis, then we are told that we are going to do the next amendment—and then the Leader of the House says that we are going to go on to the end of this particular clause. So information is short. I look across at the Benches opposite and am glad to see that Ministers are using the seating to try to get a bit of a snooze in while this debate is going on. I imagine that quite shortly blankets will be produced for people across the Benches.

This is quite an important amendment. The need for it comes from the fact that, as a result of it being a compulsory referendum, you need to resolve issues about how the alternative vote system works. My noble friend Lord Rooker raises the question that your third, fourth and fifth preferences may not be treated with the same enthusiasm as your first and second preferences and he deals to some extent—although he eschews this in what he says—with the problem that your third, fourth and fifth preference may include unacceptable extremist parties. We do not want their second preferences to determine the vote in the election. We have to address this issue if there is going to be a referendum. We have to address it on the basis that, whether or not you like AV, if the AV referendum wins, how we deal with the amendment proposed by my noble friend Lord Rooker will determine how we deal with second, third and fourth preferences.

I can see the intellectual force of the position taken by the great intellectual, my noble friend Lord Rooker, but it seems to me to lead to the following problems. First, it says,

“reallocated … by the proportion of its preference (that is to say if the candidate was ranked 3 then one third of a vote, if ranked 4 then one quarter of a vote and so on)”.

So if there are 12 candidates, as there are in by-elections from time to time, it could go down to as low as one-twelfth of a vote. That is complicated and it leads to the proposition that somebody could win an election by one-twelfth of a vote, because you end up with one-twelfth of a vote being given. If number one and number two are equal and the twelfth candidate’s preferences are given and it is a twelfth for one and none for the other, you win by one-twelfth of a vote. That strikes me as an absurd system of a very high degree of complexity. The noble Lord, Lord Rooker, has indentified a real problem in relation to AV which has to be addressed in the Bill, because it is a compulsory referendum. We can draw our own conclusions as to whether AV is the right system or not, but this does have to be addressed. While I recognise the problems that the noble Lord, Lord Rooker, points out, my own view is that the right course is to go with something that is clear, simple and practical, rather than a system that—

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[Lord Wallace of Tankerness]

My Lords, I agree with much of the analysis of the noble and learned Lord, Lord Falconer. Just because the total is a small figure, there is no reason why the second preference votes should carry any less value. It is also important to reflect, as the noble Lord, Lord Lipsey, said, that the purpose of a system is to provide a wide choice for voters. Under this system, every vote has equal value and is allocated to the candidate who is ranked highest in the preferences marked on the ballot paper and who is still in the contest. It is only fair to assume that in a second round the person marked as the first preference is the one whom the voter wishes to see come first, and it is important that that vote has full value.

[Lord Foulkes of Cumnock]

Can the Minister help me? I have had a quick look through the Bill and I cannot find any provision, although it is probably carried over from existing legislation, where candidates have to pay deposits and, if they get less than a percentage of the vote, they will lose that deposit. Is that provision still there? If that is the case, I am afraid my noble and learned friend, Lord Falconer, might have to rethink because, if someone is going to lose their deposit, why should the votes be transferred? The threshold for losing the deposit was set at that level for a particular reason. I do not remember when it was set and what the reason was, but presumably it was that the candidate had failed to convince enough electors.

[Lord Falconer of Thoroton]

Where you take someone’s deposit away because they get less than 5 per cent, you are in effect “punishing” the candidate for standing because he could not get enough support. You would be wrong to punish the people who vote for him.

Parliamentary Voting System and Constituencies Bill

Debate between Lord Falconer of Thoroton and Lord Foulkes of Cumnock

Monday 20th December 2010 Lords Chamber

[Lord Foulkes of Cumnock]

In the West Country, that may be rightly so, but where I come from the term is not thought of in quite that manner. I am very glad to see the noble Lord here. Having served with him in the House of Commons, I have great respect for him, especially as so many of the reforms in the House of Commons came from him. However, my recollection is that the reforms that he introduced in the House of Commons were brought in after careful thought, after much discussion and after cross-party deliberation—unlike those in the Bill. No doubt whoever is replying to the debate on the amendment will bear that point in mind.

My noble friend Lady Hayter of Kentish Town has raised a very important point. Incidentally, I thought that it was with great ingenuity that the noble Lord, Lord Elystan-Morgan, brought in the whole question of thresholds, which we have previously debated. I hope that at some point—I do not know whether that will be now or later this evening or on Report—we will be permitted to vote on the matter in Amendment 44A, because it is important that we should consider the question of thresholds. However, on the more important issue today concerning the result in the four countries that comprise the United Kingdom, I think that my noble friend Lady Hayter has done this House a great service in moving Amendment 44.

[Lord Falconer of Thoroton]

My Lords, I welcome the noble Lords, Lord St John, Lord Tebbit and Lord Roberts to this debate, which has, as ever, been a riveting discussion. I note two points in particular: first, that the noble Lords, Lord Tebbit and Lord McAvoy, appeared to agree on practically everything, excepting a marginal disagreement on the vote on joining the European Union; and, secondly, that the noble Lord, Lord Grocott, with a straight face described himself as a moderniser.

In Amendment 44, my noble friend Lady Hayter proposes that, in order for the referendum vote to effect a change in the voting system, there must be a yes vote in all four countries of the United Kingdom. As such, this is another debate on whether special barriers should need to be overcome before the voting system can be changed. In looking at the Bill, one of the roles of the House of Lords must be to ensure the correct constitutional proprieties. Whether one looks at the proposals in the Bill that was introduced before the general election or the proposals in this Bill, there is a constitutional piece of trickiness going on. Neither House of Parliament has said that it wants AV, so the proposal has not been endorsed by Parliament, in contradistinction to the proposal on membership of the European Union, which was endorsed by Parliament, and the devolution changes, which were endorsed by Parliament in 1999.

Parliamentary Voting System and Constituencies Bill

Debate between Lord Falconer of Thoroton and Lord Foulkes of Cumnock

Monday 13th December 2010 Lords Chamber

[Lord Foulkes of Cumnock]

I would need notice of that question.

I understand the import of what my noble friend says, but this has to start somewhere. We are a pioneering country—why should we not start with this? Okay, it is a pro-European kind of amendment, and I know that not all my noble friends are as enthusiastic about the European Union as I am, but it is a good way to start.

The mother of two of my grandchildren is French; I must declare an interest in relation to that. She has now moved to Scotland. To all intents and purposes she is a citizen of Scotland and the UK, although she retains her French citizenship. There must be so many people like that. Think of the Poles who came over. Some of them fought for us in the Second World War—there are not many of them left—but some are still not British citizens. There are other Poles who have come over and, while some have gone back, some of them have now made their homes in the United Kingdom. Some came over to work in the mines in Ayrshire and in other parts of the United Kingdom. Some have retained their citizenship of other European countries but, to all intents and purposes, they are now as much United Kingdom citizens as the rest of us. They are paying all their taxes, so should they not vote? There is a strong argument there, as well as the practical arguments about conflating the franchise.

My noble friend Lord Rooker described his earlier amendment as a “lifeboat”. We provided that lifeboat for the coalition. The coalition has not jumped on to that lifeboat yet but it is waiting, bobbing alongside the coalition liner, ready to provide some help if 5 May proves difficult. This amendment is not so much a lifeboat as a lifebelt for my noble friend—he is still my noble friend—Lord McNally. If he wishes to take it, he can make life a lot easier for the polling officers. He can go back to his colleagues in the other place and say, “We’ve improved the Bill in this way. We’ve made it easier for people to vote. We’ve made it less cumbersome and less confusing. That’s one argument that that fellow Foulkes can no longer keep on pursuing”. I hope that the Minister will see this as a lifebelt and grasp it with both hands.

[Lord Falconer of Thoroton]

The amendment of my noble friend Lord Foulkes identifies a problem that arises from the Government’s plan to combine the date of the referendum with already scheduled polls in the devolved regions and local authority areas across the United Kingdom. Citizens of other European Union member states who are resident in the Untied Kingdom can vote in local government elections. A French citizen living in Leicester will be able to cast their vote in the unitary authority elections on 5 May. An Italian citizen who lives in Newcastle upon Tyne will be able to do the same, as will a Spaniard in west Somerset.

Those who are resident in Scotland and Wales, by virtue of their residency and not their citizenship, may vote in either the Scottish Parliament or the National Assembly for Wales elections. Consequently, a German citizen who lives in Cardiff will be able to vote for his local AM in May, as a Belgian in Edinburgh will be able to vote for her local MSP. However, when any of these people go to the polls next May, they will not be eligible to cast a vote in the Government’s proposed referendum. The consequence, as the noble Lord, Lord Tyler, so emphatically and eye-poppingly enthusiastically said before supper, of having different electorates for different votes would be terrible. This is what my noble friend Lord Foulkes of Cumnock has indicated is the position.

Clause 2(1)(a) of the Parliamentary Voting System and Constituencies Bill states:

“Those who are entitled to vote in the referendum are … the persons who, on the date of the referendum, would be entitled to vote as electors at a parliamentary election in any constituency”.

This explicitly does not include citizens of other EU member states who are resident in the UK. As my noble friend has argued, there is potential here for administrative confusion. The polling stations in the 80 per cent of the country that will be combining polls on 5 May will be administering multiple franchises. There will need to be two separate lists of eligible voters: one for the referendum and one for the local and devolved elections. This is the argument behind my noble friend’s amendment. I see that the confusion argument has force but I would deal with it differently. I would deal with it on the basis that the answer is not to combine, but to move the referendum to a date other than 5 November.

--- Later in debate ---

[Lord Foulkes of Cumnock]

I hope that that is now clear. There is a lot of money to be made by lawyers one way or another in challenging this. Certainly, it looks strange to me.

I have a couple of things to say in relation to the debate on the amendment in the few minutes that we have left. The noble Lord, Lord Hamilton, made a powerful point when he said that an extensive debate on the referendum was needed. Someone said in a previous debate that this great debate needed its own space, unsullied by local and Scottish elections. My noble friend Lord Lipsey spoke as usual with eloquence and grace, although I disagreed with much of what he said. One thing that I did agree with was his questioning of the idea that this was a simple Bill. It is not a simple Bill. The noble Lord, Lord McNally, described it as aiming for fair votes and fair boundaries. The noble Lords, Lord Strathclyde and Lord McNally, and now the noble and learned Lord, Lord Wallace of Tankerness, have clearly been given a remit from Mr Clegg and Mr Cameron to get this Bill through at all costs. They have been told, “Put your heads down and don’t worry about the arguments. If points are made by the other side, don’t worry too much about answering them. Just get it through”. That is what they are trying to do. As I said in a previous debate, this is the Clegg project and it must be got through.

The noble Baroness, Lady Royall, asked an important Question at Question Time today about holding the Executive to account. This Chamber of Parliament should have some respect for holding the Executive to account, and the Executive should have some respect for debates and votes that take place in this Chamber. The questions that have been raised have been ignored. They are sincere and important questions, which are not being answered from the Dispatch Box. The noble and learned Lord, Lord Wallace, did a much better job of answering the questions today than he has done previously. I understand that the questions concern the technicalities of the poll. However, when I moved my amendment, I, too, dealt with the technicalities of the poll and said that there would be great confusion because of the two franchises taking place. Because of the technical argument of the noble and learned Lord, Lord Wallace, and because of his plea to me to withdraw the amendment, I will do so, on the basis that it would be much better for all of us if we struck out Clause 4.

[Lord Falconer of Thoroton]

My Lords, I earnestly ask the noble and learned Lord, Lord Wallace of Tankerness, to think again about the wording of the government amendment. I have made it clear that we would support what he wants to do if Clause 4 stands part, but I believe that the Government have not got it right and I ask them to think again. In relation to Clause 4 stand part, I will seek the opinion of the Committee, because this is the means of allowing the polls to be held together. It is right that the clause has technical aspects, but it is basically the foundation of the polls being held together.